Final evaluation of ERDF-funded A55 road operation (summary)

ERDF funding was secured by the Welsh Government as part of the 2014-20 ERDF West Wales and the Valleys Operational Programme (OP) ^{[footnote 1]} to deliver improvements to two arterial roads in Wales: the A55 and the A40. This report provides a final evaluation of improvements to the A55 between Abergwyngregyn and Tai’r Meibion in North Wales.

The strategic rationale for ERDF investment is set out in the OP. This contains an objective to invest in the Trans-European Transport Network (TEN-T) ^{[footnote 2]}. The core investment rationale set out in the OP is economic and states that investments should aim to mitigate peripherality and demonstrate that they are addressing bottlenecks in terms of access to employment or unlocking opportunities for regional economic growth ^{[footnote 3]}. Operations are also expected to make a positive contribution to sustainable travel options, including through the provision of cycleways, footpaths, etc. in addition to the improved highway.

The Abergwyngregyn to Tai’r Meibion operation is located between Conwy and Bangor. Specifically, the operation involved:

• the widening of a 2.2km length of dual carriageway trunk road to meet modern dual standards
• closing gaps in the central reservation and the numerous field and private accesses joining the A55
• the reconstruction or creation of 2km of footpath or cycleway
• delivery of a footway to improve pedestrian access to local bus services
• extension of existing cattle underpasses
• creation of an agricultural access track
• implementation of an improved drainage system on the A55

The total cost of the operation (including risk and contingency), as set out at the time of the final re-evaluation in December 2022, was £21.70 million. Of this, £20.01 million was funded by ERDF, with the remaining £1.69 million from the Welsh Government. In addition, there were further costs incurred in the delivery of the operation that were ineligible for ERDF expenditure.

The OP defined a series of result and output indicators which operations funded by ERDF were expected to achieve. In the case of the Abergwyngregyn to Tai’r Meibion operation: 

• the ERDF Result Indicator is a 5-10% increase in average speed along the A55 (from a baseline average of 86 kph, defined in the OP ^{[footnote 4]})
• the ERDF Output Indicators are: 
  • total length of reconstructed or upgraded roads (including TEN-T): 2.2 km
  • footpath or cycleway created or reconstructed: 2 km

All operations funded through ERDF must also integrate a series of Cross-Cutting Themes (CCT) into their design and delivery, consistent with the 2015 Wellbeing of Future Generations Act. These relate to sustainable development, tackling poverty and social inclusion, equal opportunities and gender mainstreaming, and the Welsh language.

Methodology

The evaluation adopted a mixed-methods approach. This involved a desk-based review of policy and strategy documents, stakeholder consultations and analysis of programme monitoring data. The stakeholders that were consulted included representatives from the project delivery teams (20), regional representatives from the Welsh Government (6), local authority representatives (9), and community and business organisations (9).

Assessment of continued strategic fit

Despite changes to the policy context since the development of the scheme, particularly in relation to climate change, a review of local and national policies and strategies confirmed that the A55 Abergwyngregyn operation continue to align with the Welsh Government’s objectives to improve regional connectivity and existing transport infrastructure through investment to support economic development and improved wellbeing. While there has been a significant shift, both nationally and locally, in priorities regarding low-carbon and environment aims and targets, strategic consultees from the Welsh Government thought the operation remained relevant. In particular, the operation had ambitions to protect biodiversity and promote active travel.

Assessment of project management and monitoring arrangements

The project management arrangements were seen as effective and working well. This was due to the knowledge and experience of the project delivery team, effective information flows and the partnership arrangements with local stakeholders. 

The monitoring systems at a project delivery level were robust, and sufficient information was provided to the Welsh Government to enable effective management and oversight. Monitoring reports to WEFO have been comprehensive with a regular dialogue established between Welsh Government’s Infrastructure Delivery Division and WEFO and the wider delivery team. 

Overall, feedback from local consultees was positive on the level of communication and engagement on the operation, particularly in regard to the role of the Public Liaison Officer. However, some wider stakeholders (particularly in local authorities) considered that they had limited knowledge of the operation and would have benefited from more information regarding the key activities and updated timescales.

Cross-Cutting Themes

Good progress was made against the CCT, particularly since construction work started on site. Measures were put in place to ensure that environmental considerations were taken into account, positive relationships were developed with local residents, and the Welsh language was promoted through material produced and careers events. Active Travel improvements were implemented as part of the scheme and an Active Travel forum was set up to facilitate input from relevant stakeholders. Several community initiatives were supported during construction, which had been received positively. 

In terms of embedding the CCT in future projects, the main suggestion was to ensure they are included in the tender and contract documentation, as they had been for the A55 operation, to ensure contractors are aware of the requirements early on. Consultees thought it would be useful to continue this approach.

Progress against outputs and outcomes

Since the A55 Abergwyngregyn operation was approved for funding in 2016, it largely progressed as expected against the original timetable. However, in March/April 2020 the construction phase was delayed by approximately six months, due to capacity issues resulting from the COVID-19 outbreak. The delivery team were able to progress with the detailed design work in the meantime and construction commenced in autumn 2020. Further delays during construction were experienced, due to further impacts from the COVID-19 pandemic and supply chain issues, with construction completed by the end of March 2023.

At the start of the project, total approved costs were £22.4m, with ERDF funding accounting for 66% of this. By the end of the scheme, total eligible costs were £21.7m, with the ERDF funding accounting for £20m. The increase in the intervention rate from 66% to 92% was due to reallocation of funding within the broader programme of ERDF operations to maximise the portfolio spending. While the project was significantly delayed, expenditure was within the amount originally approved for the scheme.

By the time of the final evaluation, the majority of the outputs had been achieved, including the two ERDF outputs. The works on the main carriageway were completed and the road was open to road users. The scheme overdelivered on the amount of footway or cycleway created, with 4km of new or reconstructed paths for Active Travel users, against a target of 2km. This was partly as a result of additional funding from the Welsh Government.

The outcomes from the A55 Abergwyngregyn operation were dependent on the completion of the scheme and a period of monitoring following completion, and, as such, robust evidence was not available at the time of the final evaluation. However, consultees from the delivery team were confident that they would be achieved in due course. Several wider outcomes were anticipated by consultees, including improvements to travel time reliability, improved network resilience, reduction in the number of collisions, improved experience from Active Travel users, and enhanced biodiversity.

Value for money assessment

The original benefit to cost ratio, calculated in 2008, ranged from 0.221 to 1.7. Typically, a BCR of 1.7 would be considered as offering medium value for money. The final cost of the scheme and expected outcomes suggest this original figure would be met if the analysis was re-run, but an updated BCR appraisal once sufficient evidence is available would be able to confirm this. From a qualitative perspective, consultees were in agreement that the scheme offered public value, in broad terms. The reasons for this included the safety improvements and the future climate resilience.

Looking to the future, there will not be any further European funding for road schemes due to Britain’s exit from the European Union. The outcome of the Roads Review suggests there will also be lower levels of capital funding for road schemes in Wales going forward. However, there are some key findings from this report which could inform future similar projects:

• the role of Public Liaison Officer at the contractor was of great value in building good relationships with local residents and businesses, and in delivering community benefits as part of the project
• the project delivery team took a creative and ambitious approach to delivering the CCT, with their actions exceeding the original targets; whist the CCT are strongly integrated into European funding, they are relevant to the Wellbeing of Future Generations Act and a similar approach could be taken in future in terms of embedding them in the contract and ensuring commitment to deliver against them by the contractor and project team
• the integration of Active Travel evolved over time with the scheme over-delivering on its original commitments; having an Active Travel forum meant key stakeholders were involved in decision making and ensured the scheme met the needs of Active Travel users
• taking a proactive approach during construction, by building more contingency time into the workplan and being flexible to adapt to changing circumstances, helped to minimise the impact of delays and use resources more efficiently; a similar approach should be taken on future construction projects

[1] West Wales and the Valleys: European Regional Development Fund (ERDF) operational programme 2014 to 2020 summary

[2] The A55 forms part of the E22 TEN-T route, extending from Ireland to Russia.

[3] West Wales and the Valleys: European Regional Development Fund (ERDF) operational programme 2014 to 2020 summary

[4] The original baseline was calculated using Trafficmaster data. A new baseline has been calculated using Inrix data as Trafficmaster data is no longer available. Further information on this can be found in Chapter 7.

Report author: SQW

Views expressed in this report are those of the researchers and not necessarily those of the Welsh Government.

For further information please contact:

Research, Monitoring and Evaluation team
Welsh Government
Cathays Park
Cardiff
CF10 3NQ

Email: research.evaluation@gov.wales

Social research number: 40/2026
Digital ISBN: 978-1-83745-110-4