(c) crown copyright
Catalogue Reference:CAB/24/263
Image Reference:0006
(THIS DOCUMENT IS THE P R O P E R T Y OP H I S B R I T A N N I C M A J E S T Y ' S
GOVERNMENT).
CABINET.
TRUNK R O A D S .
f/ I
*
C O P Y N O . Hi
'
M e m o r a n d u m by the M i n i s t e r , of T r a n s p o r t .
f \
36
t
In view of the great and c o n t i n u i n g g r o w t h of m o t o r
traffic/
and the n e c e s s i t y for m o d e r n i s i n g the layout
main lines of c o m m u n i c a t i o n b y r o a d , as most
of our
other countries
are
now d o i n g , I have b e c o m e m o r e and m o r e i m p r e s s e d w i t h the
disadvantages
of the p r e s e n t s y s t e m , u n d e r w h i c h even the
trunk routes are a m a t t e r of local r e s p o n s i b i l i t y *
circumstances
great
In such
it is e x t r e m e l y d i f f i c u l t , and often i m p o s s i b l e , to
secure improvements of l a y o u t , and the u n i f o r m i t y in w i d t h ,
surfacing, s i g n a l l i n g , e t c . , w h i c h is n e c e s s a r y for the safety
all classes of road u s e r s and the c o n v e n i e n c e of t r a f f i c .
difficulties
are n a t u r a l l y
of
These
greatest w h e n the chief interest to be
served is that of t h r o u g h t r a f f i c .
Individual l o c a l
authorities
are not always w i l l i n g , and in m a n y c a s e s , b y r e a s o n of
their
restricted f i n a n c i a l r e s o u r c e s , are not a b l e , t o a t t a i n and maintain,
adequate standards
(2)
Already
on t h e s e r o a d s .
it has b e e n n e c e s s a r y
to r e i n t r o d u c e
special
rates of grant for w o r k s of Improvement on the r o a d s in q u e s t i o n ,
ranging from 75 per c e n t , to 85 per c e n t , and e v e n t h e s e
are
regarded as insufficient "by m a n y a u t h o r i t i e s to enable them
proceed.
It w o u l d seem b e t t e r to secure a r e a d j u s t m e n t
to
of b u r d e n
j
by a clean cut transfer of a r e s p o n s i b i l i t y w h i c h m a y f a i r l y b e
regarded as n a t i o n a l , than to attempt to secure some m o d i c u m
progress by a m i x t u r e of pressure
and special
financial
inducement w h i c h e v e n w h e n successful leads to great
r
t
of
delay.
A census on C l a s s I r o a d s h a s shown that the. n u m b e r of v e h i c l e s
passing 4 8 3 0 c o m o a r a b l e p o i n t s w a s 34.6$ greater in August
1935 than i n A u g u s t 1 9 3 1 .
1
I
U S
Moreover, the financial assistance which the Road Fund is able
to offer on a percentage basis is most easily claimed by the
wealthy authorities whose resources enable them to raise their
share of the cost without undue strain, while other authorities
in poor areas, where in the interests of through traffic the
roads often stand in far greater need of improvement, may be
incapable of providing so great a local contribution, with the
result that their lengths of through roads remain unimproved,
despite the offer of
(3)
abnormal rates of grant.
The 516 miles of the Great North Road from London
to the Scottish Border is an example of the unsatisfactory
condition of a through route.
There still remain 190 miles
or nearly two-thirds of its length, where the road, cannot
comfortably accommodate more than one line of traffic in
each direction, and where, therefore, a stationary vehicle
reduces the road to a single track, and where footpaths
and adequate visibility at corners have not been secured.
The unimproved sections lie for the most part in agricultural
counties, such as Bedfordshire, Huntingdon, the two divisions
of Lincolnshire, the North Riding, and the northern part of
Nor thumb e rland.
(L)
Some of the county councils may perhaps suggest
as an alternative policy that they should be given 100 per
cent, grants from the Road Fund to meet expenditure upon the
roads over which they would still retain formal control,
and. which they would administer through the ordinary system
of local government.
This is not a solution which could be
satisfactory from the point of view of transport, nor is it
one which, on general financial grounds, could be regarded
as sound.
J
(5)
I a m , t h e r e f o r e , f o r c e d to' t h e c o n c l u s i o n
the time h a s come to recognise as n a t i o n a l
m i l e s of trunk roads (oractically
that
roads some
all of which h a v e
already
-been selected u n d e r p r e v i o u s i m p r o v e m e n t p r o g r a m m e s
special t r e a t m e n t ) , and to transfer r e s p o n s i b i l i t y
4500
for
for
them
to the M i n i s t e r of T r a n s p o r t .
(6)
T h e L e c a l Government A c t
step f o r w a r d in transferring
Rural District
Councils
but a f u r t h e r step
of 1929 took a great
the h i g h w a y f u n c t i o n s
of
to the C o u n t y C o u n c i l s , and it
in a natural
e v o l u t i o n to relieve
county councils t h e m s e l v e s f r o m the b u r d e n of
is
the
administering
the t r u n k roads w h i c h are in truth " r o u t e s nationales ' here
1
no l e s s t h a n abroad.
there
In a d d i t i o n to the m o t o r i n g
is a good deal of P a r l i a m e n t a r y
f a v o u r of some change of this k i n d .
organisations
and public opinion
in
N o r will p r o p o s a l s
on
the l i n e s w h i c h I h a v e o u t l i n e d come as any surprise
county
councils.
to
the
In f a c t , the C o u n t y C o u n c i l s ' A s s o c i a t i o n
have f o r some time b e e n e x p l o r i n g
special s u b - c o m m i t t e e w h i c h
the m a t t e r t h r o u g h a
recently r e c o m m e n d e d that
r e g a r d to the substantially h i g h e r s t a n d a r d of
having
road
c o n s t r u c t i o n a n d m a i n t e n a n c e n o w r e q u i r e d to m e e t
modern
t r a f f i c , the r e c o n s t r u c t i o n , i m p r o v e m e n t and m a i n t e n a n c e
c e r t a i n roads of m a j o r i m p o r t a n c e s h o u l d b e c o m e
of
the
financial r e s p o n s i b i l i t y of the M i n i s t r y of T r a n s p o r t , the
work t h e r e o n b e i n g
carried out b y
the h i g h w a y a u t h o r i t i e s
agents.
(7)
1 have
just b e e n furnished, w i t h a copy of a
circular l e t t e r to
the individual
county c o u n c i l s ,
with the authority of the E x e c u t i v e C o u n c i l of
A s s o c i a t i o n , explaining
sub-committee
issued
the
the c o n s i d e r a t i o n s which l e d
to their c o n c l u s i o n s .
A n extract f r o m
circular l e t t e r will b e found in the a p p e n d i x t o t h i s
the
the
as
" M R
x
memorandum a n d
if
complete
Central
as
will
highway
in
carried
in
out
seen
as
is
must
the
the
still
county
such
actual
with
but
appear
which
to
system
out
the
grant
approval
to
would
work
could
aided
and
real
that
ensue".
continue
schemes
It
is
in
already
they
in
have
significant
reasonable
Association
to
ask
any
substantial
percentages
of
not
(8)
I
the
kind
only
liability
an e v e r
and
I
hope
the
network
present
having
increasing
would be
for
of
that
to
one
local
them
Indeed,
be
stronger
on f a r
of
roads
charge.
which
result
by
to
other
be
the
of
are
types
the
be
will
the
a
is
in
present
fact
likely
letterfor
points
the
over
the
while
that
them
roads
to
scheme
relief
the
prefer
upon
thrown,
and
roads
in
money
and
the
their
this
way
other
for
which
relief
time
remain
in
be
this
classified
resisting
a
prospective
necessary
to
the
substantial
bound
position
road.
is
the
still
disposed
of
between
important
important
to
departmental
belief
affording
the
not
extent
available
as
from
traffic
for
the
does
time.
the
these
it
increase
same
in
but
find
which
grounds
the
should
practicable
welcome
of
meeting
the A s s o c i a t i o n
assistance
to
nor
the
improve
strain
assist
at
burdens
to
improvement
of
will
to
with
circular
already
strengthened
suggested
from
grant
control
am t h u s
the
appreciable
of
of
require
that
neither-
undiminjshed
regard
arid
recommended
is
claiming
view
practice
it
for
policy
the c o u n t y highway
unimpaired
that
difference
which
that
the
of
and
O
authorities.
Sub-Committee
much
that
thus
taken
that
" T h e administrative integrity o f
authorities
is
control
possess
surrendered,
the
view
"be a s s u m e d "by
suggested,
he
existence
by
that
responsibility
authorities
question
machinery
"be
financial
Government
the
roads
it
I
we
shall
demands
increased
(9)
The cost to the County Councils in respect of
maintenance of these roads, after allowing f o r
present
contributions from the Road Thmd, is in the neighbourhood
of half a million pounds per annum.
It is not possible to
estimate even, the approximate cost of the improvements which
will be necessary during the next ten years, but a [provisional
estimate of some seventy millions to be expended over a
period of not less than ten years has been tentatively
formulated.
In fact? this expenditure would tend to be
spread over a substantially longer period.
(10)
When I assume administrative responsibility for
trunk roads, I must necessarily also assume financial
responsibility.
It is, however, a matter for discussion
how far local authorities should contribute towards the
expenses which will be incurred by me in the future.
It
would not, I think, b e appropriate that they should pay a
specific percentage of the costs which will actually be
incurred.
Inability in some cases at all events to find,
i n relation to the schemes necessary in the future, the
moderate percentage of cost which now falls on the local
authority- i s indeed one reason for the present proposal.
Moreover,
such a scheme would inevitably lead t o a claim
f o r a share i n the administrative responsibility,
Any
contribution would have to be based on the expenses now and
recently incurred from which, apart from a contribution,
local authorities will b e relieved.
(ll)
It i s not practicable to require a contribution
even
on this basis towards improvement costs which vary considerablj
between authority and authority and between year and year.
Local authorities will therefore obtain complete relief
from their liabilities for future improvements.
AS
regards maintenance costs, there has been less variation in
expenditure
though even here it is st 11 appreciable.
After­
discussion of the whole problem with the Chancellor of the
exchequer, I propose that only such financial contribution
should be required as can be obtained by operation on the
general block grant to local authorities.
A substantial
reduction of local expenditure justifies an immediate
reduction of the block grant in order to bring it to the
appropriate percentage of the new total local expenditure.
Whether more than this should be demanded should, X propose ,
be a matter for consideration in the general review of the
block grant which is now being undertaken in consultation
with local authorities by the minister of health and the
Secretary of State for Scotland.
(12)
The roads which would be selected for transfer are
as shown on the accompanying map.
Subject to certain
additions amounting to about 500 miles of road (e.g. the
London-Portsmouth Road, a connection from Newport to
Shrewsbury, a road from Southampton through Oxford to
Birmingham, Harrington and Preston with a spur to Chester, a
road from Peterborough through Lincoln to Grirnsby, and several
cross-country connections in the North of England) of which
the general character and situation justifies their inclusion
from the present point of view, the roads selected have long­
been regarded by the Ministry of Transport, and accepted by
the highway authorities, as forming the backbone of national
communication, and in that respect distinguishable from the
ordinary
classified roads.
Although some of the latter may
carry as heavy a traffic, much of that traffic is of a more­
local character.
(13)
in generals therefore, it should not he difficult to
defend and secure acceptance of the selection of these roads,
on which a practicable scheme can be based, though in order to
provide for changes of circumstances, it is for consideration
whether power should not be taken in the Bill to add. to the
original schedule other roads or parts of roads which assume
the character and function of a trunk road.
It may be
advisable to make the exercise of any such power subject to the
approval of parliaments
(14)
It is not proposed to include within the scheme the
portions of roads, in continuation of trunk roads, which lie
within the boundaries of county boroughs, large burghs in
Scotland, or the administrative County of London.
The Local
Government Act, 1929, distinguished betv/een county boroughs, and
counties by including classified roads v/ithin the scope of the
block grant in the County and Metropolitan boroughs, on the
ground that in their case even these roads possessed a high
degree of local importance and in Scotland the Local Government
(Scotland) Act, 1929, contained corresponding provisions with
regard to classified roads in counties and large burghSo
The
same argument applies, if not with quite equal force, to the
category of trunk roads, and while no doubt there is something
to be said for the view that the sections in these boroughs
constitute and should be treated as part of the through route,
it must be admitted that for a variety of reasons the
opportunity for effective central control is much less.
In
many cases, moreover, the proper solution is a by-pass lying
outside, or mainly outside, the boundaries of the borough
itself, and
where this solution is adopted the expense will,
under my proposals, fall upon the Koad Fund, while the
borough will be relieved of the congestion of traffic.
(15)
On the financial side
s
I understand that the
Treasury consider that there is an overwhelming case for
excluding the county boroughs
9
the large burghs
and the
9
administrative County of London from relief of the
general
burden of maintaining and improving these roads.
(16)
widely
9
As between one county and another the relief
9
though
will not be equally spread;, but practically all will
benefit? no serioiis anomalies would appear to arise
9
and it i s
9
therefore,, not proposed to complicate the scheme by any attempt
at special adjustments through a formula,,
At the same time
9
in their final negotiations as to the adjustment of the general
Exchequer contribution to the block grant for the next
quinquennium,, the Treasury will be able to pray in aid the fact
that in this important respect the burdens of the counties., and
particularly their prospective burdens
(17)
9
are being lightened.
Administratively., the basis of my proposal is the
simple one that the Minister of Transport should
as from the
9
1st April next (in Scotland 15th Kay) assume the functions and
obligations of a highway authority in relation %o the specified
roads.
(18)
The intention i s
9
by a process of delegation analogous
to that permissible under the Local Government. A c t
9
1929
s
as
between county councils and district councils,, to use the
county councils as agents for purposes of maintenance and minor
improvements
s
and wherever possible also to utilise the existing
organisation when it is suitable for supervising maj.or-
:
improvements,, which will usually be carried out by contract.
The employment of direct labour by the Minister of Transport
would thus be avoided or kept at a minimum.
(19)
With the concurrence of the Treasury and other
Departments concerned the drafting of the necessary
Bill
has
been well advanced,
and subject to
-
9
123
-
approval of its principle
9
could be submitted to the Home
Affairs Committee at a fairly early date.
is put into final shape
?
But before it
it would I suggest he advisable
to take the county councils into confidence as to the main
features of the scheme and it would be most helpful if I
were free to consult them fully upon its administrative
details..
Certain points of difficulty^ including the
complications arising out of the Restriction of Ribbon
Development A c t
9
1935, need adjustment on lines which could
be most usefully discussed with the county authorities which
£.2? 0 S o intimately c oncerned.
(SO)
The authority of the Cabinet is therefore requested?
(1) To complete the preparation of a Bill for
transferring the control of specified trunk
roads from county councils to the Minister of
Transport as from the beginning of the next
financial year (or some later date to be
appointed by h i m ) , with a view to the
introduction of the Bill in the autumn.,
The
Bill to be submitted to the Home Affairs
Committee in the usual way.
(2) To make an announcement in Parliament in general
terms of the Government s intention to introduce
s
a Bill to transfer the Trunk Roads to the
Minister of Transport.
(3) To explain the proposals
3
and their financial
effect to the local authorities generally in the
course of the discussions as to the adjustment
of the General Exchequer Contribution which are
now being conducted by the Treasury and the
Ministry of Health and Scottish office and to
pursue discussions with the County councils'
Association at once in such detail as may seem
desirable of the nature of the scheme with a view
' 93^.
1
to enlisting their cooperation..
(Int. )
L.H. B.
EXTRACT iTOOM CIRCULAR LETTER SEl-TT BY COUFTY
COUNCILS' ASSOCIATION TO INDIVIDUAL COUNCILS
ON 17th JUNE, 19 ;6.
:
a
*o
oea
o*o
* o
B
B
O
O
* a *
5. As is well known, the basic grants for improvement and maintenance
are, and have for some years been 6*0 per cent, in respect of Class 1
roads and RO per cent, for Class 11 roads.
So far as major
improvement works are concerned, however, it has long been the
practice of the Ministry of Transport to give larger grants in
special circumstances, and this practice has now been regularised
under a system by which, following the application of a formula
similar to that prescribed for the purposes of the Local Government
Act, 1529, grants as high as 85 per cent.
and 80 per cento
(in areas not built-up)
(in built-up areas) are payable, the maximum
percentages being available in respect of trunk roads in the least
wealthy counties.
It is nevertheless contended by man:/ county
councils that, apart from the question whether the formula operates
equitably as between the various counties, the balance left to be
borne by the rates represents too heavy a burden, mainly in
consequence of the substantially higher standard of construction and
lay-out now required to meet modern traffic conditions,
o,
With this contention the Sub-Committe
will be seen from
their report, entirely in agreement, and they do not think that
anything less than a 100 per cent, grant in respect of certain roads
will meet the case, especially in those counties where the rateable
value is low and there exist important roads mainly used by through
traffic.
7*
If, however, complete financial responsibility be assumed by the
Ministry, as is now suggested, it appears to the Sub-Committee to
follow logically that such control of policy as the highway
authorities still possess with regard to the roads in question will [1
pass to the Department but, with the machinery in existence, they
see every reason why the actual work should be carried out by the
county authorities.
The administrative integrity of the county
1 91"
Sr*af (*,?
highway departments would
thus continue u n i m p a i r e d ,
not appear to the S u b - C o m m i t t e e
w h i c h g r a n t - a i d e d schemes
t h a t , in view of the extent
already
approval, m u c h real d i f f e r e n c e
and it does
require
to
departmental
in p r a c t i c e b e t w e e n the
system and that w h i c h they have recommended
present
is in fact l i k e l y
to
ensue.
6,
In other w o r d s , it is n e i t h e r reasonable n o r p r a c t i c a b l e ,
as the S u b - C o m m i t t e e visualise
to ask for any appreciable
the p r o b l e m ,
increase
percentages of grant already
for the
over the
Association
substantial
available w h i l e claiming
undiminished
control at the same time.
9.
But financial c o n s i d e r a t i o n s
alone have not b e e n
for the p r o p o s a l n o w u n d e r d i s c u s s i o n .
responsible
4s y o u r C o u n c i l
doubtless b e aware, the p a s t few m o n t h s
have w i t n e s s e d
campaign in the p u b l i c p r e s s and e l s e w h e r e
a strong
f o r the
n a t i o n a l i s a t i o n of r o a d s , a t t e n t i o n b e i n g drawn to the
large n u m b e r of highway
alleged,
that there is an u n d e s i r a b l e l a c k of u n i f o r m i t y
course, not n e w , b u t the S u b - C o m m i t t e e
circumstances
advocated b y
are impressed b y
that, in c o n t r a d i s t i n c t i o n
to t h e p a s t ,
the
responsibility.
of highway authorities dealing w i t h
of national or s e m i - n a t i o n a l
the S u b - C o m m i t t e e
importance
think, b e
is in f a c t
admitted, a nd there i s , in
on the p a r t of the authorities
nationalisation of roads on a s u b s t a n t i a l
take p l a c e .
Therefore
view, important
scale w i l l
reason that the S u b - C o m m i t t e e have
above.
of some
themselves,
eventually
it is for this a d d i t i o n a l , and
the limited transfer described
roads
excessive
their opinion, considerable d a n g e r that, in the absence
counter-move
the
is n o w b e i n g
oeople and journals of u n i m p e a c h a b l e
T h a t the n u m b e r
in
T h i s c a m p a i g n i s , of
transfer of ror-os to some central a u t h o r i t y
must,
very
a u t h o r i t i e s , w i t h the result, so it is
methods of c o n s t r u c t i o n and m a i n t e n a n c e .
10.
will
in t h e i r
recommended
11,
Finally, as regards the roads to which the recommendation
applies, it will be observed that the phrase "certain roads of
major importance
;I
has been used in the Report.
This is
intentionally vague, as there does not appear to be any precise
definition of the kind of road which the Sub-Committee have in
mind.
The principal trunk roads would., of course, be included
5
but there are, so the Sub-Committee are informed, certain other
Class I roads in respect of which the burden of through traffic
and consequent expenditure is such as to justify 1 0 0 per cent,
grants.
The Sub-Committee do not contemplate for a moment the
wholesale transfer of highway administration to the Ministry,
and they
venture to suggest that, on this assurance, a closer
definition of the roads involved should remain in abeyance
pending such negotiations with the Ministry as they may be
authorised to undertake,
12,
In view of the importance and urgency of this matter
it
is hoped that you will be able to take early instructions
from your Council and inform the Association of their views
without delay.
In the event of disagreement with the Sub-
C o m m i t t e e ^ recommendation, the submission of a constructive
alternative proposal for d.ealing with the problem would be
helpful,
P R O P O S E D
T R U N K
R O A D S