(1 week, 2 days ago)
Commons ChamberRead Hansard Text Watch Debate Read Debate Ministerial Extracts
Claire Young (Thornbury and Yate) (LD)
I want to start by setting the scene. The A432 M4 overbridge forms part of a key route from my constituency into Bristol. It was erected in 1966 when the M4 was built and is a post-tensioned concrete bridge. That is, it has high-strength steel tendons in ducts within concrete to which tension was applied after the concrete set, before they were anchored in concrete and the ducts filled in with grouting. I will come back to the problems of such bridges later, but for now the key point to note is that it usually takes around 16,000 vehicles a day over the motorway to the Wick Wick roundabout, where drivers can continue on the A432 into Bristol or take the A4174 ring road.
I say usually, because in June 2023 National Highways closed the bridge, having given 48 hours’ notice to South Gloucestershire council, of which I was leader at the time. In December 2023, after six months of investigations, National Highways announced that the bridge would have to be replaced and could not reopen in the meantime, and that the work would take between two and three years, backdated to June. At one point, an end date of 2025 was mentioned, but that has now become the spring of 2026.
The closure is having a massive impact on local residents. The official diversion is long, so many of the 16,000 vehicles are ending up on local country lanes such as Henfield Road, Ram Hill and Down Road. Even part of the official diversion route is only a C road. The council has put in extensive measures to improve traffic flow, but roads are taking loads that they were never designed to take. That is resulting in long queues, residents being unable to get out of their properties safely or at all, and more potholes and the edges of roads breaking up. Heavy goods vehicles are using roads with weight limits and there is no enforcement to stop them. Henfield Road and Ram Hill are in a quiet lanes scheme, where walkers, cyclists, horse riders and drivers are supposed to share the roads respectfully, but that is not happening.
The situation has also exacerbated flooding on Henfield Road, and high levels of traffic are pushing water on to people’s properties. That has left villagers feeling cut off, especially when flooding has taken other routes out of action. Further, when the bridge is demolished, which we are told is due to happen in March, pedestrians and cyclists will also be forced to divert.
Above all, people question the length of time that it is taking to replace the bridge. One wrote:
“For the past 16 months, we have had just one route to exit Yate to reach the city centre, which has been plagued by continuous temporary traffic lights—often two sets on Bristol Road. Why is it taking so long?”
Another said:
“When the bridge is eventually replaced, it’s likely to be the best part of 3 years to fix the issue. This is an utter embarrassment and quite frankly an absolute disgrace. The inconvenience this is causing to businesses, commuters and homeowners to name but a few is immeasurable. Those responsible for this debacle should hang their heads in shame.”
The closure has left the usually busy stretch of Badminton Road between Coalpit Heath and the bridge practically deserted, which has had a huge impact on local businesses. Kevin at the Bigger Eater burger van has been trading in that lay-by for 30 years. He provided a great service to local people during the pandemic, but the loss of passing trade because of the closure could be the final straw. There is also a kebab van in the lay-by in the evenings. Viaduct Café has lost 60% of its turnover since the bridge closed, resulting in its losing half of its staff. The premises where it is located have lost two business tenants. PM Autos, which services cars and has an agreement to take vehicles for their MOT to a garage in Downend on the other side of the closure, has to take a round-about route that adds significantly to the time taken and cuts into their takings. The Golden Heart pub has lost the passing trade of people deciding to stop for a meal on their way home from work. Heritage Sheds and Fencing has complained that potential customers are not sure whether it is still open; again, it is losing trade.
The impact on the local economy does not seem to be fully recognised. This is not something that businesses can reasonably insure against, yet when I wrote to the Minister I was told simply that there is no right to passing trade. In the same way that viable businesses needed help to see them through covid, these businesses need support to ensure that they survive this closure.
Although the bridge is the responsibility of National Highways, it has fallen to South Gloucestershire council to deal with the impacts that I have described on the local road network. I wish to put on record my thanks to the many officers involved for their efforts in responding to such an unexpected event. After initial monitoring, they put in place temporary measures, including traffic lights, road closures and temporary signage, and when it was confirmed that the road would remain closed for two to three years, they reviewed the existing measures and implemented more. Although some were funded by National Highways, others were deemed to be an “existing problem”—overlooking the fact that the closure is exacerbating those existing problems—or too far away to be related to the bridge, despite the fact that closing such a major route has ripple effects across the local road network.
Unfortunately, the measures that the council put in place are not enough, for example, to stop the HGVs using unsuitable roads, because any physical measures that stop lorries also stop buses, and the police do not have the resources to enforce the restrictions. For a long-term issue such as this, it is vital that the police have the resources to manage it. I also highlight the impacts on other council services: carers, waste lorries and so on all have to take longer routes
The council has been dealing with extensive communication from the public and liaising with National Highways, the police and bus operators, which has been a significant drain on resources in itself. One thing that I was determined to do when I became leader of South Gloucestershire council was improve communication with our residents. In the case of the bridge closure, that meant doing video updates in which we put residents’ questions to National Highways officers. At the beginning, it felt that getting information out of National Highways to share with the public would be a challenge, but I am pleased to say that it got on board with the updates, so much so that I understand it was considering rolling them out elsewhere in the country. Not only have the video updates continued with my successor, but National Highways has attended public-engagement sessions alongside councillors and council officers. Although communication cannot remove all the frustration and disruption, it is vital that people know what is going on and can get answers to their questions.
Why am I bringing what could appear to be a hyper-local issue to the House? I believe that there is a significant wider risk. National Highways manages 169 post- tensioned concrete bridges on the strategic road network in the south-west alone, and 1,195 nationwide. In addition, there are an estimated 675 that are the responsibility of 105 local highway authorities. Of those 675, research by the RAC Foundation in 2021 reported that a whopping 293 required intrusive inspections that could cost £100,000.
“CS 465 Management of post-tensioned concrete bridges”, a document I am sure we are all familiar with, says in its introduction that
“tendons can be vulnerable to corrosion and severe deterioration where internal grouting of tendon ducts is incomplete and moist air, water and contaminants can enter the ducting system.”
It goes on to say that
“construction practices and a lack of maintenance”
are the key factors affecting deterioration. In the case of the A432 bridge, workers discovered when they drilled through to the tendons that the grouting was missing.
CS 465 also explains that the problem with post-tensioned concrete bridges is that “safety critical defects in post-tensioned concrete are typically hidden, very difficult to detect and may result in a brittle mode of failure.”
Unfortunately, visual inspections alone will not give warning of imminent collapse, and intrusive investigations can be expensive and potentially damaging. If a problem is identified, these bridges have to be removed very carefully, as the tendons are under tension—if we think about what happens when we release a taut elastic band, we can see why that would be dangerous. With many bridges having been built during the height of motorway building in the ‘60s and ‘70s, it is entirely possible that this sort of major disruption is coming to many other communities across the country.
I come now to my asks of the Minister. Given the high level of disruption and the local dismay about the length of time the work is taking, will the Minister work with National Highways to try to bring forward the reopening of the road? Turning to the wider issue, what reassurance can the public have that all the thousands of post-tension concrete bridges in the UK are safe? What is the plan to ensure that that is the case, and has it been reviewed in the 19 months since this bridge was discovered to be failing? How will lessons be learned from this experience to reduce the time needed to replace other bridges that are identified as failing?
Will the Minister review how residents and businesses are supported and compensated when National Highways inflict significant disruption on them for an extended period? Will he also look at how the local highway authority is helped to manage its road network when impacted by a National Highways closure, and at how the police are resourced to help it to do that? Will he review how the assessment is made of which measures should fall within the costs ascribed to National Highways, whether an existing problem is being worsened by the closure, and how widely the impact is recognised, so that local highway authorities are not left with huge bills? Will the Minister consider the approach taken to communications in this case, and work with National Highways so that initiatives such as the video updates are rolled out to other incidents, to ensure timely communication with the public?
I have previously spoken in this House about the financial challenges facing local authorities in simply trying to maintain basic infrastructure, even without additional problems such as this road closure. Will the Minister commit to giving South Gloucestershire council the money that it needs to restore the damaged roads when the bridge has reopened?
Claire Hazelgrove (Filton and Bradley Stoke) (Lab)
I welcome the debate of my constituency neighbour, the hon. Member for Thornbury and Yate (Claire Young), although I would have appreciated some notification of the debate, given that the bridge also sits within my constituency and impacts my residents every single day in exactly the same way as it does hers.
I completely agree with the challenges that have been described. Delays in getting home, to work or to a doctor’s appointment are very real challenges. As the leader of the council at the time the big challenges with the bridge were discovered, when National Highways thought that it needed to intervene to close the bridge because things had got to that stage, the hon. Lady has deep insight into those challenges. I welcome the work that she and others, including Ian Boulton, who was co-leader of the council at the time, have done alongside council officers to mitigate the impact of the bridge closure. I work closely with them and get regular updates, for which I am very grateful as a constituency MP. That close relationship between the council and MPs is what our constituents want. They want us to work together with council leaders in South Gloucestershire, and I am fully committed to that.
Although there are delays and we wish the bridge could be opened soon—I echo that desire—I understand that National Highways has brought about this work as quickly as it could. We seek to communicate that to residents —I know that I do as an MP—so that they know the hard and fast work being done. National Highways recognises the importance of this bridge as an artery across and between our communities for people to get to work and see family members. My hon. Friend the Member for North Somerset (Sadik Al-Hassan), who is sitting beside me, knows the situation well, he having lived just on the other side of the bridge for a long time. He can attest to the delays and the challenges that the situation is causing hard-working families and individuals across our community.
A lot of local people recognise not only the challenge, but the ambition being led by the council, alongside National Highways, to ensure that the new bridge can serve our communities in the way that it needs to in the long term—that is positive. The consultation work done over a long while on ways to bring in active travel measures and offer more opportunities will serve our communities well in the long term. I hear and echo the challenges that have been described, which my residents and I share and understand, but I am optimistic about the long-term future of the bridge. I hope that it can be an example of the good types of bridges that we want to see elsewhere across our country.
I will leave it there for now. I wanted to share those additional and important factors, as well as the views of local people on my side of the bridge.
The Parliamentary Under-Secretary of State for Transport (Simon Lightwood)
It is a pleasure to respond to the important points raised by the hon. Member for Thornbury and Yate (Claire Young) and by my hon. Friend the Member for Filton and Bradley Stoke (Claire Hazelgrove). I thank the hon. Member for Thornbury and Yate for securing the debate on such an important matter: the replacement of the A432 Badminton Road M4 overbridge.
Safety on our roads is of the upmost importance, which is why the Government have announced that we intend to publish a new road safety strategy, the first in over a decade. Work is already underway on that. The maintenance and renewal of vital structures on our roads is also of the utmost importance and contributes to the safety of everyone who uses the strategic road network.
I note from the hon. Member’s efforts to secure a debate on this subject that she is indeed a strong advocate for her constituents, businesses and road users—as is my hon. Friend the Member for Filton and Bradley Stoke—and she has been campaigning extensively to see improvements and to see how quickly this vital structure over the M4 can be replaced with minimal impact on local people and businesses, and to protect the safety of everyone who uses it.
Our strategic road network is the backbone of our country’s economy. With 4,500 miles of motorways and major A-roads, it connects people, builds communities, creates opportunities and helps the country to thrive. Although it makes up only 2.4% of England’s overall road network, it is the most heavily used and carries a third of all traffic and two thirds of all freight.
Investment in our strategic road network is made through the road investment strategy process, which is focused on creating a road network that is safe, accessible and reliable for all road users, and which addresses its impacts on those who use it and live near it. We are committed to putting road transport at the heart of our mission-driven Government, transforming infrastructure so that it works for the whole country, unlocking growth, promoting social mobility and tackling regional inequality.
The hon. Member for Thornbury and Yate may be aware that locally managed roads make up 98% of the road network, and that almost every journey starts and ends on a local road. We understand how critical it is to keep the local road network functioning as this promotes growth locally and nationally and has a daily impact on the lives of millions of people. Where these local roads interact with the strategic road network, we aim to ensure that that is seamless and there is minimal impact on local people and businesses, while recognising safety needs.
The A432 M4 overbridge has been closed since July 2023, following a detailed structural survey conducted by National Highways. The survey identified accelerated deteriorations and cracking on the underside of the bridge. As the hon. Member will understand, the safety of all road users is paramount, and a decision was made to close the bridge to traffic while maintaining access for cyclists and pedestrians.
I understand the concerns that the hon. Member may have due to the length of the closure, but I want to highlight that this is a complex scheme that has involved numerous specialists, including utility providers, in preparation for the demolition to begin. The demolition is planned for March this year, with a new bridge planned to open for motorists early next year.
The hon. Member called for the work to be expedited and I can assure her that National Highways has already worked hard to accelerate many of the activities that support the replacement, to ensure that the bridge is available for the community as soon as possible. Indeed, I have been talking to National Highways and understand that normally a project of this scale would take about five years, whereas the period for this project is three years. My Department will continue to engage readily with National Highways as the project progresses.
I am sure that the hon. Member will understand that National Highways has no intention of inconveniencing road users, but it accepts that, due to the nature of this type of work, and especially when road closures are necessary, some level of disruption is unavoidable. I understand the concern that there will be a period when no crossing of any kind is possible over the M4 on Badminton Road.
As I mentioned, the hon. Member is a strong champion for local businesses in her constituency and has called for compensation due to the impact of traffic diversions. National Highways provides compensation as required by legislation across its projects and schemes. The compensation arrangements generally cover permanent adverse impacts, and the generally held principle is that the public purse does not compensate businesses for loss of earnings due to temporary road works.
National Highways has worked with South Gloucestershire council on funding and implementing the traffic management it requires on its network. Mitigation provided includes significant volumes of static signing, variable electronic message signs and temporary traffic signals. The diversion routes used during the A432 closure have been agreed with the council and are the optimum routes available. The council will have considered the impact of the reassigned traffic, its implications and the limited alternatives available on its network. None the less, I understand the hon. Member’s views on the impact that increased traffic may have on local roads that are not designed for heavy traffic volumes. However, the strategic and local road networks use each other when diversion opportunities are for mutual benefit.
I assure the hon. Member that National Highways will continue to work with South Gloucestershire council to ensure that works are completed efficiently and to mitigate, as much as is practically possible, the disruption caused by the closure of the bridge. That includes working with South Gloucestershire council to refine the traffic management arrangements on local roads.
I want to take this opportunity to affirm that National Highways has a robust inspection regime, ensuring the delivery of a safe and reliable motorway and trunk road network in England. It has a programme of structural inspections, investigations and assessments to ensure that potentially vulnerable structures are identified, that safeguarding measures are adopted and that maintenance works are programmed and prioritised. National Highways inspects all its bridges and other structures in line with the published guidance in the design manual for roads and bridges. That includes a general visual inspection every two years and a more detailed principal inspection every six years, which identifies and records defects in reinforced concrete, steelwork and other construction materials.
Where necessary, further investigations, which may include material tests, are undertaken to establish the extent, severity and specific causes of the defects. If maintenance works are required, they are prioritised and the necessary repairs are carried out to ensure that the structure remains safe and fit for purpose. National Highways applies any lessons learned on challenging projects across the organisation as standard practice. However, it is worth mentioning that inspection is based on standards set out in the design manual for roads and bridges.
Protecting the safety of all road users will always be a priority of this Government. Road safety is a shared responsibility, and it is important that we all recognise the part we can play as it cannot be achieved in isolation. Disruption will occur when action must be taken to address safety issues on the network, but we also acknowledge that maintenance of our roads ultimately benefits the whole community.
I thank the hon. Member for Thornbury and Yate once again not only for securing the debate, but for the important points she has raised and for her campaigning on behalf of her constituents. I also thank my hon. Friend the Member for Filton and Bradley Stoke for her contribution. I reassure the hon. Member for Thornbury and Yate that I take this matter seriously and will aim to continue the conversation to see what we can achieve to provide a positive outcome for road users in the short and long term.
Question put and agreed to.