Welsh Roads Review: Two years on

Two years ago on Valentine’s Day, Lee Waters, the Deputy Minister for Climate Change at the time, published the Welsh Roads Review and the Welsh Government’s response. It received widespread international attention and praise for adopting a forwarded thinking approach. There were, of course, some critics, but despite their claims, the plan did not ban road investment. Instead, it made it clear that new projects would need to contribute towards “achieving modal shift”, with a focus on minimising carbon emissions, not increasing road capacity or emissions through higher vehicle speeds and not adversely affecting ecologically valuable sites.

In this blog post, we look back at what progress – if any – has been made in Wales since the roads review was concluded.

Where decisions are made

Most aspects of surface transport are devolved to the Welsh Government, which is responsible for roads, buses, taxis, and some rail. It also has a role in planning for ports and logistics.

While the devolution of powers for transport in Wales has brought many benefits, there are some drawbacks:

Complexity and Fragmentation

The current system involves a mix of devolved and reserved powers, leading to complex decision-making processes. This can hinder efficient planning and delivery of transport projects, as responsibilities are split between different tiers of government. This is particularly true for rail, where the Welsh Government manages its rail services, while the UK Government retains control over rail infrastructure.

Funding disparities

Wales often receives less funding for transport infrastructure compared to other parts of the UK. This can limit the scope and ambition of transport projects, hindering improvements to the network. The lack of Barnett consequentials for rail infrastructure spending in England further exacerbates this issue.

A change in personnel

Since the roads review was concluded, there has been a change of leadership, and maybe focus, with a new First Minister, Eluned Morgan, and a new Minister for Transport and North Wales, Ken Skates.
Back in 2023, Ken Skates criticised the roads review for not taking local people’s opinions into account, saying: “We all want to achieve net-zero targets. But in order to do so you also have to make sure that you bring people with you. If you don’t want people to use a car you have got to provide an alternative.”

It suggests he may be a bit more cautious than Waters, who understood the difficult task of reaching net zero goals and was an advocate of not simply doing things as they have always been done.

This could mean a greater willingness to consider modifications to existing projects rather than outright cancellation.

Since being in charge of transport, Ken Skates has confirmed a new A494 bridge crossing over the River Dee at Queensferry will go ahead. There are a number of options and a consultation is currently underway. It is promising to see that the Welsh Government’s preferred option seems to be the least environmentally damaging and promotes active travel opportunities.

Active travel

In January, the Minister released a written statement promoting walking, wheeling and cycling. However, in the same week, a Labour Councillor in North Wales dropped a bombshell that the Minister was considering cutting the Welsh Government’s Active Travel Fund to pay for a “resilient roads” programme. This suggests that once protected funding allocated to meet the Welsh Government’s goal that 45 per cent of all journeys are made by active travel and public transport by 2041 could be diverted to fund road and pothole repairs.

In 2024-25, the Welsh Government allocated £65 million to its key active travel initiatives, with the Active Travel Fund being the largest component. Whilst the 2025/26 transport budget has increased, there are signs that much of this has been allocated to broader transport initiatives at the expense of active travel.

The concept of “ring-fencing” is crucial. Worryingly, in its draft budget for 2025/26, ringfenced funding for active travel has been replaced by a ‘regional and active travel fund’.

Public transport

Rail infrastructure

Whilst the Welsh Government can choose to invest in rail infrastructure, planning and funding this (outside the Welsh Government owned Core Valley Lines) is a UK Government responsibility. Wales doesn’t receive any block grant allocation for rail infrastructure so any investments have to be funded from money allocated to Wales for other purposes.

HS2 was classified as an England and Wales project despite having no tangible benefits for Wales. Following the 2024 election, the Labour Government has acknowledged a historic lack of investment, but the Chancellor has announced that there will be no new investment in rail infrastructure until after the next election.

There is reason to be hopeful, though. Welsh Secretary Jo Stevens told a Welsh Affairs Committee that the Welsh Government and ministers in Westminster had “agreed a direction of travel”, which she hoped would “deliver new rail investment for Wales”.

Three key points had underpinned these discussions:

• Recognition that Wales had not received a fair share of funding
• That Government commissioned investigations into rail had provided a “really good blueprint” for which investments to prioritise
• The UK and Welsh Government needed to work together on the matter

Bus network

In 2022, the Welsh Government published its White Paper ‘One Network, One Timetable, One Ticket’. It set out the long term vision of a bus network that works for all and makes public transport the easy option, encouraging modal shift, reducing congestion and improving air quality.

The response has been overwhelmingly positive and the case for franchising by the Welsh Government appears to have been made.

Franchising: The Welsh Government, along with Transport for Wales and local authorities, will plan the bus network. Contracts (franchises) will be awarded to bus companies to run specific services. This means there will be more control over routes, timetables, fares, and the quality of buses.
Integrated Network: The aim is to create a more joined-up and user-friendly bus network, where services are integrated and easier to understand.
Public Control: The proposals will also allow for the creation of publicly owned bus companies, giving the government or local authorities another option for running services.

Despite this, the publication of the long awaited Bus Bill was delayed several times last year. It is now expected to be published in March.

In the Welsh Government’s draft budget an additional £9 million has been allocated to franchising for 2025/26 although, considering that 75% of all public transport journeys are made by bus, this is unlikely to have any real impact when additional staff and vehicle costs are considered.

Is the love for the roads review fading?

We are a year away from the Senedd elections and there are some indications that whilst Welsh Labour are still committed to legally-mandated net zero targets, the battle lines have been drawn over the speed of interventions and the costs to people and businesses.

This week we have heard that, following public polling a proposed consultation on idling has been delayed until after the Senedd elections. There is also concern that there may be a movement away from the green policies adopted by Mark Drakeford and Lee Waters in an effort to avoid being seen as ‘anti-motorist’ (whatever that means!).

It is clear that for a time at least, the honeymoon period of the Welsh Roads review is over and that populist tendencies will be driving policy over the next twelve months.

It is vital that the Welsh Government maintains its position on traffic reduction, through supporting an effective public transport network and investing in active travel. This approach strengthens our economy by boosting local businesses, as people who walk and cycle tend to spend more in their local area. Fitter, healthier people take fewer days off sick which helps employers reduce costs and reduces the strain on the NHS.

Reduced reliance on cars improves air quality, benefiting those in deprived areas, often most affected by pollution. Safer roads resulting from fewer cars and 20mph zones has led to lower car insurance premiums and reduced pressure on the NHS as fewer people have been killed or seriously injured.
Whilst reducing traffic helps lower emissions and contributes to a healthier environment, the roads review is primarily about building a stronger economy, a fairer society, and a healthier community for all. One cannot be taken forward in isolation, all aspects have to progress together.