Llanbedr Consultation

In light of the recommendations of Welsh Government’s Roads Review Panel and more recent transport policy, namely Llwybr Newydd: the Wales Transport Strategy, we have developed potential options to address the known transport problems in Llanbedr. Different options have been identified for both the scenario where the Low-Speed Relief Road is constructed (With Low-Speed Relief Road) and where it is not (Without Low-Speed Relief Road). This enables us to understand if there are any options that can address the known issues without the need for a new road to the west of Llanbedr, whilst also identifying potential further measures within Llanbedr village and along Mochras Road to improve safety and the local community if the Low-Speed Relief Road is constructed.

The potential options are set out as follows:

The first page of each of the options presents an ‘Overview Plan’, which details all elements included in each option. This is followed by more detailed drawings of the individual elements for your consideration. Please note that we are aware that there are some locations where specific elements interact with each other within options; further consideration of this will be undertaken following the public engagement period.

The sections referred to in the drawings are shown here, for your reference.

Llanbedr Village – improvements along the A496 and within the village centre

Without Low-Speed Relief Road Scenario

• Option 1 – Safety Improvements.
• Option 2 – Safety, Active Travel, and Public Transport Improvements.
• Option 3 – Safety, Active Travel, Public Transport, and Traffic Flow Improvements (Traffic Signals)
• Option 4 – Safety, Active Travel, Public Transport, and Traffic Flow Improvements (Off-Street Residential Car Parking).

With Low-Speed Relief Road Scenario

• Option 5 – Safety Improvements.
• Option 6 – Safety, Active Travel, and Public Transport Improvements.

Mochras Road – improvements between Llanbedr village, the railway station, and Shell Island

Without Low-Speed Relief Road Scenario

• Option 7 – Safety Improvements.
• Option 8 – Safety and Active Travel Improvements.

With Low-Speed Relief Road Scenario

• Option 9 – Safety Improvements.
• Option 10 – Safety and Active Travel Improvements.

Llanbedr Railway Station – improvements to cycle and car parking

Both With and Without Low-Speed Relief Road Scenario

• Option 11 – Improvements to Existing Car and Cycle Parking.
• Option 12 – New Car and Cycle Parking.

As outlined in the WelTAG Stage 0 - Case for Change, the community and visitors to Llanbedr are negatively impacted by motor vehicles that are required to drive through the village along the A496. This is reflected by the high collision rate along the A496 through Llanbedr, as well as the inconsistency in journey times through the village, particularly during the tourist season.

The motor vehicles travelling through Llanbedr also impact on connectivity on-foot and by cycle, with no footways provided alongside the road through the village, contributing to the safety concerns and accessibility of active modes. It also has a negative impact on the setting of the village, making the built environment less attractive than it could be if improvements were made.

On this basis, working alongside the local community, we have identified that improvements are required in Llanbedr to specifically:

• Improve safety by all modes;
• Encourage and enable journeys by sustainable transport modes within the village and in the surrounding area;
• Improve the built environment within Llanbedr; and
• Reduce the impact of traffic associated with the visitor economy on the local community.

As you may be aware, planning approval for a new bypass to the west of Llanbedr was obtained in 2020. However, due to the recommendations of the Welsh Government’s Roads Review in 2021, funding was withdrawn for the previous scheme. Changes to the previous scheme are therefore required for Welsh Government to further consider potential funding of the scheme.

Although the Roads Review Panel recommended that the previous scheme should not be taken forward, it was suggested that there would be benefit in further discussion between Cyngor Gwynedd and Welsh Government about an alternative package of measures to reduce the negative impact of traffic in Llanbedr, noting the view of the community that ‘something must be done’. As part of this, it was suggested that consideration be given to constructing a ‘low speed bypass’ and a closure of the existing A496 through Llanbedr as a ‘last resort once other solutions have been tried’.

This has led to the development of this study, which considers the potential options to address the known transport problems in Llanbedr. The study will demonstrate that Cyngor Gwynedd has given due consideration and thought to all potential options to improve the transport situation in Llanbedr, supporting us in obtaining future funding for the development of transport improvements from Welsh Government. 

Taking into consideration the comments raised by Welsh Government’s Roads Review Panel and key stakeholders as part of the WelTAG Stage 1 process, we have revisited the design of the previous Llanbedr bypass scheme. To ensure the previously proposed alignment of the road was still the most suitable option, we undertook a validation exercise as part WelTAG Stage 1 which identified that, if a new road is constructed, it should be located to the west of Llanbedr, broadly following the route of the previous scheme.

The key features of the revised Llanbedr bypass scheme – now referred to as the Low-Speed Relief Road – are summarised as follows:

• 40-mph speed limit and associated highway design features.
• Revised tie-in at the northern end of the road, to minimise the new carriageway construction required.
• Prohibition of motor vehicles across the exiting Artro River Bridge, with the exception of emergency service vehicles and local bus services.
• Prohibition of motor vehicles along Mochras Road under the Low-Speed Relief Road, with the exception of emergency service vehicles.
• No street-lighting or dedicated active travel infrastructure along its length. Active travel users will be encouraged to utilise the existing A496 through Llanbedr, due to the expected reduction in traffic along the existing road.

The proposed Low-Speed Relief Road drawing is available here.

In June 2021, Welsh Government announced a pause on all new road building schemes whilst a review was undertaken on their suitability in light of Llwybr Newydd: the Wales Transport Strategy and the requirement to achieve Net Zero Carbon Emissions by 2050. Subsequently, a panel of independent experts were appointed, with the outcome of the review published in February 2023. A total of 51 recommendations were published by the Roads Review Panel, with funding withdrawn for the majority of schemes on environmental grounds, or significant changes recommended.

Due to the need for an expedient recommendation, owing to the planning status of the previous Llanbedr bypass scheme, the Roads Review Panel provided a detailed response to the Llanbedr Access Road and Bypass in November 2021, which primarily focused on two questions specific to the scheme:

1. Has sufficient consideration been given to non-transport solutions and solutions other than those increasing private car capacity on the road network?
2. Has sufficient consideration been given to whether the road proposal will lead to increased CO2 emissions on the road network, or cause significant impediment to achievement of our decarbonisation targets?

The review concluded that the scheme did not align with Welsh Government transport policy, recommending that the scheme was not taken forward. The key concerns raised by the Roads Review Panel about the scheme were as follows:

• Significant elements of the analysis appear to have started from the presumption that the only solution is a new road and greater traffic capacity.
• Non-transport solutions did not receive sufficient consideration at the outset. In particular, there was inadequate consideration of whether the scale of development envisaged at Llanbedr Airfield is appropriate in this location.
• The potential for the access needs of the Llanbedr Airfield site to be met by a smaller access road, or a non-road option, was not sufficiently considered.
• There was not a thorough investigation of options that could reduce the negative impact of traffic in Llanbedr (and other villages along the A496) without increasing road capacity, through modal shift from car to public transport, walking and cycling.
• The assessment of the impact of the scheme on CO2 emissions was considered to be superficial and lacking in credibility. It was considered more likely than not that the previous scheme would increase CO2 emissions due to induced traffic, higher speeds and embodied carbon, making it more difficult for Wales to achieve decarbonisation targets.

Despite recommending that the previous scheme should not be taken forward for these reasons, it was suggested that there would be benefit in further discussion between Cyngor Gwynedd and Welsh Government about an alternative package of measures to reduce the negative impact of traffic in Llanbedr. This has resulted in the Llanbedr Transport Improvements WelTAG study, which has identified a number of potential options that could be introduced to address the known transport problems in Llanbedr, aligning more closely with Welsh Government transport policy.

The Llanbedr Transport Improvements scheme is being progressed using WelTAG (Welsh Government’s Transport Appraisal Guidance). The WelTAG 2024 guidance sets out a process and broad framework for identifying, appraising and evaluating solutions to address transport-related issues. It helps to identify the most beneficial scheme and allows schemes to be compared on a like-for-like basis. All transport projects in Wales that require funding by Welsh Government requires the WelTAG process to be followed.

The WelTAG process comprises six stages which are intended to cover the lifecycle of a proposed transport scheme, from conception to post-implementation evaluation. The five stages of WelTAG are:

• Stage 0 – Case for Change.
• Stage One – Strategic Outline for Business Case.
• Stage Two – Outline Business Case.
• Stage Three – Full Business Case.
• Stage Four – Delivery.
• Stage Five – Monitoring and Evaluation.

Currently, the study is at WelTAG Stage Two (Outline Business Case).

As you may be aware, planning approval for a new bypass to the west of Llanbedr was obtained 4 March 2020. As part of this approval, Condition 1 stated that:

The development hereby permitted shall be commenced before the expiration of five years from the date of this decision.

This means that it was required that a material start be made to the Llanbedr bypass scheme by 4 March 2025, or the planning approval would lapse. On this basis, Cyngor Gwynedd have progressed with satisfying the pre-commencement conditions associated with the planning approval and subsequently made a material start to construction of a new road in this location in February 2025.

It should be noted that the activities undertaken to make a material start to planning approval NP5/62/399 are not associated with the Llanbedr Transport Improvements WelTAG study being undertaken. The activities have been undertaken to ensure that, if the WelTAG study recommends construction of a new road in this location and funding is secured from Welsh Government, or other sources, to construct the road, there would not be a requirement to restart the planning process. If this was required, it would require significant public funds being invested in a planning process which has already been completed in 2020, alongside potential impacts on construction programmes.

Whilst planning approval has been obtained for a new road to the west of Llanbedr (NP5/62/399), following the Roads Review Panel’s recommendation, Welsh Government have withdrawn further funding for construction of the scheme. On this basis, the previous Llanbedr bypass scheme cannot proceed, as Cyngor Gwynedd require funding to construct the scheme from Welsh Government, or any other funding body.

Taking this into account, to maximise the potential opportunity for funding to be obtained from Welsh Government to construct transport infrastructure improvements in Llanbedr – be that a new road, other improvements, or a combination of a new road and other improvements – Cyngor Gwynedd are undertaking the Llanbedr Transport Improvements WelTAG study.

In order to demonstrate to Welsh Government that we have taken into consideration the recommendations of the Roads Review Panel, we have identified potential options that could address the known transport issues in Llanbedr.

This is particularly relevant to the Roads Review Panel’s recommendation that a new road at Llanbedr is only considered as a ‘last resort once other solutions have been tried’. By considering potential options where a new road to the west of Llanbedr is not constructed, Cyngor Gwynedd can demonstrate that it has considered all potential options to improve the current transport situation in Llanbedr and along the A496.

For example, taking into account stakeholder feedback, the WelTAG Stage 2 study may identify that an option that does not require the Low-Speed Relief Road to be constructed is as successful as other options with the road constructed in addressing the known transport issues locally. If this is the case, this option would be taken forward and plans for a Low-Speed Relief Road not progressed further.

Alternatively, we may find that an option that includes the Low-Speed Relief Road is the most successful option at addressing the known issues and presents the best value for money. This option would then be taken forward, alongside the revised Low-Speed Relief Road, for further progression. We will however have demonstrated that we have taken into consideration all potential options to improve the transport situation in Llanbedr, addressing some of the concerns raised by the Roads Review Panel in its recommendations.

A WelTAG Stage 0 - Case for Change has been produced as part of this project, which has considered the key transport problems in Llanbedr and set objectives for the project. The transport problems and objectives were identified in collaboration with the local community, informed by workshops undertaken locally during 2024.

The key transport problems that have been identified of relevance to this project are summarised as follows:

• Safety – there is a high collision rate along the A496 through Llanbedr, compared with other rural roads of this type. There is also a significant negative perception of safety for people when walking and cycling in the village.
• Reliance on the Private Car – the majority of people drive for journeys in the local area, which is partly due to a poor network of active travel routes and limited operating times for public transport.
• Access to Services & Employment – due to the limited availability of non-car transport choices, local people who do not drive do not have effective access to key services and employment in the area.
• Community Severance & Sense of Place – the A496 severs Llanbedr and makes for a less attractive village centre than it could be.
• The Visitor Economy – traffic associated with the visitor economy causes significant local congestion during peak periods and to issues with safety.
• Resilience – the A496 crosses the Grade II listed Artro River Bridge in Llanbedr, which is a narrow historic structure. If an incident were to occur at this location, the impact on the road network would be severe, partly due to the lack of a suitable alternative route for traffic.

To address these transport problems, the following study objectives have been set as part of the WelTAG process:

1. Reduce the need to travel for key services and employment.
2. Improve safety for all transport modes.
3. Prioritise journeys on-foot and by cycle within Llanbedr village.
4. Improve access by sustainable modes to and from Llanbedr and areas to the west of the village.
5. Enhance the local built environment to improve the sense of place and contribute to the vibrancy of the village.
6. Reduce the impact of the visitor economy on the road network.
7. Improve the resilience of the transport network in and around Llanbedr.
8. Reduce the impact of climate change on the local community.

Cyngor Gwynedd are aware of the potential development proposals at Llanbedr Airfield and will be considering the potential impact of the development on the options proposed.

It is also acknowledged that the construction of a Low-Speed Relief Road would support in enabling the Llanbedr Airfield site to be developed. Whilst this could have potential economic impacts to the local and regional economy, this is not a primary consideration of the Llanbedr Transport Improvements WelTAG study, with this project primarily focused on addressing the significant known transport problems within Llanbedr and particularly along the A496.

We are undertaking this engagement to obtain the views of the public on the potential options proposed within Llanbedr and the local area. Once we have received the comments as part of this engagement process, we will update the potential options and include this feedback within our WelTAG Stage 2 reporting, in order to identify a preferred scheme to be taken forward. The WelTAG Stage 2 study will be completed by the summer of 2025.

At the end of WelTAG Stage 2, a preferred scheme will be identified and the next steps set out in further detail for Cyngor Gwynedd’s consideration, alongside key partners in Transport for Wales and Welsh Government. The further progression of the project after the conclusion of WelTAG Stage 2 is subject to the availability of funding and agreement from Transport for Wales and Welsh Government on the recommendations.

Assuming funding is made available to Cyngor Gwynedd to proceed with the preferred scheme, a WelTAG Stage 3 (Full Business Case) will need to be completed, to enable us to apply for construction funding.

It is not possible to provide further indication of timescales beyond this at this stage, as we have not identified the preferred scheme. 

If you own land impacted by any of the potential options proposed, please feel free to get in touch with the project team 

• Welsh transport appraisal guidance (WelTAG)
• Llanbedr: Improving transport
• Llwybr Newydd: the Wales transport strategy 2021
• The Future of Road Investment in Wales 
• Roads Review Panel: Llanbedr access road and bypass