Local highways maintenance transparency report

Date published: June 2025

The Department for Transport expects all local highways authorities to publish information about their highways maintenance activities to help local taxpayers see the difference that funding is making in their areas.

Our highway network

Plymouth Highways are responsible for HMPE (Highways Maintainable at Public Expense) / Public Highway. HMPE does not necessarily include other land owned by the Council or 3^rd party owned land, which may appear to form part of a highway. Once our drainage and electrical systems join the main networks owned by the Utility Companies, they are no longer the responsibility of Plymouth Highways. Trunk roads running through Plymouth, in particular the A38 Parkway and many of its slip-roads are not managed by Plymouth Highways but are managed by National Highways.

The carriageway lengths below are derived from our modelled network. Footway lengths are an estimate derived from a combination of survey and network data. Cycleways are an estimate of where there is a segregated lane for cycling on HMPE. This does not include any public rights of way that are not maintained as part of the HMPE network.

We also maintain:

• 45 bridges, 52 culverts, 28 Footbridges, 48 subways, 4 tunnels
• 15km of Vehicle Restraint Systems,
• Approx. 42,000 Road Gullies and over 7km of linear drainage
• 2 drainage pumping stations
• 31,676 streetlights
• 3,316 illuminated road signs
• 120 traffic signal junctions
• 64 controlled pedestrian crossings
• 665 other items of illuminated street furniture
• 196 cameras
• 13 safe space help points

Other assets managed by Plymouth Highways include; street furniture (such as bollards, grit bins, non-illuminated signage), road lining, pedestrian barriers, highway trees and verges, VMS (Variable Messaging Signs), other structures abutting the highway etc.

Highways maintenance spending figures

These figures only include works completed using DfT funding and Council budgets allocated for Highways Maintenance. This does not include ITB (Integrated Transport Block) funding as this is not used for Highways Maintenance works. Where other works around the City may have been funded from other Council monies, these are not included. Capital Spend for 2025/26 includes some rolled budgets to deliver major schemes that could not be delivered over a one year period.

Additional information on spending

When determining the split between preventative and reactive investment, preventative budgets are defined based on data modelling and available funding, whereas the primary consideration when reviewing reactive allocation is the need to ensure safety for network users, which is based on trends and averages from previous years.

Preventative

This encompasses tasks designed to prolong the lifespan of existing assets or to prevent incidents on the network. This work could include:

• Carriageways and Footways: resurfacing or surface treatments
• Streetlighting and traffic signals: cleaning, replacement, surveying, testing or upgrading assets
• Drainage: scheduled clearance, and works targeting known flooding issues
• Structures: painting at-risk elements, wall maintenance, traffic reduction measures to manage bridge loading, and vegetation management
• Schemes aimed at increasing safety and accessibility, new traffic signs, and traffic orders (such as parking or access restrictions)
• Cleaning, replacement or upgrades to street furniture

As a means to undertake preventative repairs to emerging defects we have introduced spray injection and traditional patching to identify and repair defects which would otherwise not meet our defect investigatory criteria. This is aimed at reducing the number of emerging defects before they require a reactive intervention.

A summary of works completed in the last 5 years is as contained in the table below:

* Central Management System

Reactive

Reactive maintenance activities are centred around safety defects identified during routine inspections or reported by Councillors or the public. This encompasses tasks that take place in response to an asset failure or defect where safety or functionality is impacted and a more timely response is required, including any issues identified as needing an urgent or immediate response. Reactive work includes:

• Carriageway, Footways and Street furniture: repairs identified following safety inspections, such as pothole repairs, kerb replacements, or replacement of damaged street furniture. The current Highways Inspection Manual provides more information on Safety Inspections and processes and can be found on the PCC website at https://www.plymouth.gov.uk/delivery-highway-maintenance
• Drainage: any response to a drainage failure where there is imminent risk to the Highway
• Streetlighting and traffic signals: repairs as a result of electrical or structural faults or failures
• Structures: the replacement of worn, damaged, or broken elements of a structure

The percentage of overall reactive spend on repairing potholes and the number of potholes repaired in the previous 5 years is estimated as follows:

Reactive pothole spend

Year	Pothole repairs	Other reactive spend
2020/21	22%	78%
2021/22	16%	84%
2022/23	11%	89%
2023/24	21%	79%
2024/25	18%	82%

We are unable to individually identify numbers of potholes due to the way these works are recorded, these numbers are based on the number of carriageway works orders completed.

We aim to increase the proportion of spend on preventative maintenance and reduce the need for reactive maintenance by:

• Upgrading to assets with a longer lifespan
• Preventative Maintenance such as targeted gully cleansing of those assets requiring cleaning and patching of emerging defects
• Drainage schemes aimed at improving known flooding hotspots
• Surface treatments such as micro-asphalt and surface dressing to prolong the life of existing assets
• A risk-based approach to reactive repairs
• Data modelling to focus the treatment programme where it is most effective

Condition of local roads

Road condition assessments on the local classified road network in England are currently made predominantly using Surface Condition Assessment for the National Network of Roads (SCANNER) laser-based technology. 

A number of parameters measured in these surveys are used to produce a road condition indicator which is categorised into three condition categories: 

• Green – No further investigation or treatment required
• Amber – Maintenance may be required soon
• Red – Should be considered for maintenance 

From 2026/27 a new methodology will be used based on the BSI PAS2161 standard. Local Highway Authorities will be required to use a supplier that has been accredited against PAS2161. This new standard will categorise roads into five categories instead of three to help government gain a more detailed understanding of road condition in England.

Further details are available at https://www.gov.uk/government/statistical-data-sets/road-condition-statistics-data-tables-rdc#condition-of-local-authority-managed-roads-rdc01  

Surveys of A roads are undertaken using SCANNER (see above) and we aim to survey 100% of the A road network in one direction of travel each year, in line with DfT requirements

Surveys of B and C roads are undertaken using SCANNER (see above) and we aim to survey 100% of the B road network and 50% of the C road network in one direction of travel each year, in line with DfT requirements. We are currently reviewing annual survey coverage for C roads.

We currently use a company called Gaist to undertake condition surveys on the unclassified network. They employ a method of visually analysing the network to establish a condition grade. We aim to undertake this survey of the whole unclassified network (excluding service lanes) every 3 years. As such we aim to undertake a further condition survey of the unclassified network in 2025-26. It should be noted that Gaist survey methods do not conform to the same standards as applied to SCANNER and therefore the results for unclassified roads are an interpretation of these results to mirror this output style.

Additional information on condition

It should be noted that we have changed supplier for the 2025/26 SCANNER condition survey, which may have impacted the results for this year.

Plans

Overall strategy

Highways Asset Management in Plymouth supports the Plymouth Plan (2014-2034) and Plymouth City Council’s Corporate Plan in line with the Code of Practice, “Well Managed Highways Infrastructure”. This is achieved by making best use of asset data to target investment in a data-led manner and optimising the value of assets over their lifecycle.

We implement a risk-based approach to maintenance whereby safety and resilience are at the forefront of our decision making. Regular inspection and reactive repair of safety defects is undertaken on a constant cycle with the goal of the first repair being a permanent repair. Plymouth City Council recognises that by taking an asset management approach to highway maintenance, investment can be targeted on long-term planned activities that prevent expensive short-term repairs. This not only maximises value for money, ensuring informed investment decisions can be made, but also manages risk and maintains a highway environment that is safe, secure and accessible.

Resilient networks have been identified for carriageways and footways. These consider key strategic factors as detailed in the Network Resilience Strategy. It is intended that through the identification and monitoring of the resilient networks that they are prioritised for maintenance and other measures to maintain economic activity and access to key services during adverse events.

To make best use of limited budgets and to optimise the lifespan of our assets we concentrate on making the right preventative intervention at the right time, which can often mean investing early or mid-life in line with the recommendations of HMEP “Prevention and a Better Cure” (2012)

To keep abreast of innovation and best practice, we are active members of LCRIG (Local Government Roads Innovation Group), LGTAG (Local Government Technical Advisory Group), and SWHA (South West Highways Alliance). Notable innovations include:

• Drones are being introduced for surveying and inspecting highway assets. They can help to quickly assess damage and monitor conditions reducing the need for manual inspections
• Recycling waste wherever possible and the specification of recycled aggregates to reduce waste and lower costs
• New electric fleet leading to reduction of maintenance, running costs, and carbon emissions
• Specification of Warm Mix Asphalts which are mixed and laid at lower temperatures, reducing energy consumption and emissions
• Incorporating green infrastructure, such as permeable pavements and bioswales, to help manage stormwater runoff and reduce environmental impact
• Street Lighting CMS to allow remote monitoring, reduction in night patrols and profiling to reduce energy and associated carbon emissions
• Programme to replace illuminated street furniture for retroreflective units where safety assessments allow
• 4G integration for traffic signalised junctions
• Registration of interest to adopt AI managed junctions
• Development of CCTV-assisted AI monitoring of traffic conditions and car park occupancy
• The use of innovative materials and practices such as: preventative patching (spray injection and traditional), durable cold applied lining to reduce the use of thermoplastic, surface retexturing and thin surface treatments to prolong the life of the assets
• Utilisation of thin coat concrete waterproofing to protect post tension bridges whilst reducing loading upon the structure

Specific plans for 2025/26

The split between Preventative and Reactive works for 2025/2026 is expected to be 80% Preventative and 20% Reactive. We would expect to fill approximately 2,600 potholes that meet our investigatory criteria this coming financial year, based on the last 5 years’ averages. This is in addition to the preventative patching that will be treating emerging defects that do not currently meet our investigatory criteria, and we hope over time that this will help to reduce the number of safety defects.

Carriageway and footway works are identified based on defined selection criteria when modelled against expected deterioration of survey data, material type, suitability of different treatments, and selected based on cost effectiveness and prioritisation. Other works are selected based on survey data, age profiling or other identified needs. Whilst these may change due to circumstances outside of our control, the current plans for 2025/26 are as below:

Streetworks

To achieve best practice and discharge of our statutory duties whilst ensuring the safety of the highway user, we gather information about planned works or events, consider how to organise them to minimise impact (including adverse weather events) and work with our neighbouring authorities to ensure that highway users enjoy efficient travel across networks. A close working relationship is enjoyed with Devon County Council, National Highways and Cornwall County Council) 

Regular meetings with JAG (UK) (Joint Authorities Group) and HAUC (Highway Authorities and Utilities Committee) help ensure compliance with national guidelines and current legislation. 

Our activities include:

• Minimising any detrimental impacts that new developments will have on the network, through early dialogue with works promoters, during construction, and via post work inspections to ensure works are carried out effectively in coordination with ongoing activities that may affect the highway
• Helping to provide more reliable journey times through coordination of works and permitting, and traffic sensitive street reviews (restriction of works during certain times). We communicate directly with Ward Councillors, Portfolio Holder and Members of the Public using: X (Formerly known as Twitter), Facebook, Road reports, on-street Variable Message System campaigns and PCC Communications
• Reducing disruption caused by planned works or events. Works on-site times are dictated by Traffic Sensitivity, advanced notification, TTRO (Temporary Traffic Regulation Orders) coordination, stakeholder engagement, and links to major event planning
• Ensuring our road network is better able to cope with unplanned events. This is achieved through the use of Public Protection, social media, adverse event planning principles, and strategic route evaluation
• Liaising with event organisers, strategic partners such as local bus companies and police, to minimise the impact of roadworks and events upon their operations
• Developing proactive innovative road space management using all available data, including reviewing Highway status and times of operation

Regular meetings are held with Statutory Authorities and Public Transport bodies. Where practical, shared space is arranged to minimise disruption. We monitor the effectiveness of our processes and evaluate the implementation of procedures and strategies.

Climate change, resilience and adaptation

The clear and present risk posed by climate change is one that cannot be ignored. In line with Plymouth City Council’s response, efforts are being made to decarbonise highways operations. It’s also key that our network is resilient to the risks posed by climate change and that our maintenance operations adapt to support this. Below are some details outlining our approach.

What we are doing to decarbonise our maintenance operations:

• We utilise advice and recommendations put forward by industry bodies, such as the recent RSTA (Road Surface Treatments Association) reports into the carbon emissions associated with various surface treatments
• Over 99% of our streetlights are now lower energy LED, resulting in a 70% reduction in energy usage. The LED light units come with self-cleaning glass, eliminating the requirement for cleaning for 12 years following installation.
• Further reductions in the carbon footprint are being made with the use of our Central Management System (CMS) whereby Individual streetlights can be profiled, enabling a bespoke lighting environment to be created
• By switching our traffic signals to Extra Low Voltage and LED equipment we are reducing energy use by up to 70% and removing the need for yearly bulk lamp changes
• The replacement of illuminated street furniture with retro reflective units where suitable reduces energy and maintenance costs.
• Where possible, works in the vicinity of each other are grouped together to optimise vehicle movements and minimise disruption.
• A UK-based supply chain is always preferred, whether that be third party contractors or the sourcing of materials
• Warm Mix Asphalts – materials are heated to a lower temperature reducing energy costs used in their production
• PCC specify the use of recycled aggregate in our materials, which in turn reduces the amount of excavated materials going to landfill
• Use of mid-life thin coat treatments, such as surface dressing, to reduce the need and frequency of more carbon and resource intensive resurfacing schemes

What we are doing to understand the risks our network faces from the changing climate and to make them more resilient:

• Resilient networks have been identified for both carriageways and footways. These take into account key strategic considerations as detailed in the Network Resilience Strategy. Through the monitoring of the resilient networks they are prioritised for maintenance and other measures to maintain economic activity and access to key services during extreme weather.
• The resilient network is prioritised for gully cleaning and all gullies on it are cleared at least annually.
• Daily weather risk reviews allow us to make informed decisions around clearing the hotspots in advance of, or following periods of heavy rainfall, high road surface temperatures, or high winds
• We have assessed the risk of known Hotspots where flooding events are more likely in periods of extreme weather and heavy rainfall. Impacted assets include conventional road gullies, kerb drainage systems, and culverts and their outlets. These are reviewed on a regular basis and any potential solutions identified and assessed.
• Flooding hotspot sites known to be at risk of blocking due leaf fall or other debris are swept on a regular basis and this sweeping regime is increased seasonally around times of leaf fall.
• We regularly liaise with the statutory Utility Companies, in particular South West Water, to raise any concerns over the impact of their assets on our network
• Drainage schemes (especially for new developments) are being designed for 1 in 100 year storm events to protect from the increasing risks of extreme weather events
• Critical testing regimes are in place to monitor deterioration of steel posts due to higher humidity that increases the risk of rust. We are installing Heavy Duty Galvanised streetlighting and sign posts to reduce this risk and increase the effective service life of these assets. This will also mitigate the risk posed by high winds
• Following a review of our Highway structures, a risk-based approach has been adopted towards subsequent inspections. We have increased focus on elements likely to suffer due to climate change, such as the effects of scour around foundations in water courses due to heavier rainfall, and expansion joints and surface materials potentially affected by increased temperatures.
• Consideration is being given to the use of asphalts, through our Term Maintenance Contractor, that are being designed to withstand higher temperatures and to be less affected by extremes of heat.
• Rainwater collection schemes are becoming more prevalent with the use of SUDS (Sustainable Urban Drainage Systems) and attenuation tanks to store rainfall and release more gradually into the drainage systems, therefore reducing the impact of intense rainfall
• Consideration is being given to the use of innovative preservation treatments for carriageways as a means of prolonging their life and reducing the need and frequency for more intrusive and intensive interventions