A call for systems thinking in sustainable highways

Dr Helen Bailey, Asphalt Programme Lead, University of Derby and Vice President of the Institute of Asphalt Technology, looks at the challenges facing highways maintenance in era of the climate emergency, and charts a progressive  roadmap for sustainable, resilient highways.

As local government leaders and service providers navigate an era defined by climate emergency declarations and heightened accountability, the future of frontline services demands a new, integrated approach. Highways maintenance — a vital frontline service — stands at the forefront of this transformation. 

Responding to the climate emergency
Almost all local authorities have declared a climate emergency, embedding carbon measurement, benchmarking, and reduction into their operational ethos. Yet, this is no longer enough. Public scrutiny around environmental claims is intensifying, demanding robust evidence to back up green credentials. For frontline services, this means adopting a more forensic approach to materials use, carbon accounting, and life-cycle thinking.

The push towards offsetting residual emissions is acknowledged, but it’s clear that offsetting should only apply to the final 10% of unavoidable emissions. The bulk of decarbonisation must come from fundamental changes to design, procurement, and maintenance practices. Local authorities must therefore harness climate contracting tools, like, for example the Chancery Lane Project (TCLP), to embed climate responsibility deep into supply chains.

Crucially, the workforce delivering these services — from contract managers to site operatives — need enhanced carbon literacy. Embedding this awareness will shift hearts and minds, ensuring that sustainability becomes instinctive rather than an afterthought.

The industry at a crossroads
The asphalt sector, pivotal to road construction and maintenance. National Highways is investing £27.4 billion into the Strategic Road Network, while local roads command £1.67 billion — covering an overwhelming 84% of the UK’s network. Yet, with around 28 million tonnes of asphalt produced in Great Britain in 2022 alone, the environmental impact is undeniable.

To address this, the industry is pivoting towards circular economy principles, with major players aligning to the UN Sustainable Development Goals. Recycled asphalt (RA), improved materials handling, advanced processing technologies, and enhanced design optimisation are all part of this drive for sustainability.

Frontline services must capitalise on these advancements. Local authorities are uniquely positioned to drive demand for secondary materials and innovative solutions. By doing so, they not only reduce environmental impact but also create more durable and resilient road networks that offer long-term value to the public.

Building for future generations
One of the most compelling themes from the presentation was the need to think beyond immediate project lifespans and adopt a generational perspective. Designing roads and infrastructure as ‘material banks’ — assets rich with recyclable resources — challenges traditional views of construction as linear and consumptive.

For councils, this means reimagining assets not simply by their form or function but by the value of their constituent materials. An accurate understanding of inventory, alongside a willingness to specify reused and remanufactured materials, can transform roads into repositories of future value rather than liabilities.

Live Labs 2, funded by the Department for Transport, is an example of this systems approach in action. Its interconnected themes and projects demonstrate how collaboration across authorities and industry can yield scalable solutions.

People and data at the heart of change
At the core of sustainable transformation lies the interplay between people and data. Measuring and benchmarking carbon impacts are just the beginning. True progress demands integration of sustainability into everyday practice, making friends with procurement teams, fostering cross-sector collaboration, and embracing flexible, visionary models — such as treating infrastructure provision as a service.

Equally, public engagement remains crucial. Understanding how individual choices and behaviours influence outcomes ensures that change is not just top-down but lived and experienced across communities. For frontline services, this translates into deeper community engagement, transparent communication about decisions, and a focus on co-designing solutions that resonate locally. 

Digital tools play a critical role here. From advanced asset management systems to predictive maintenance powered by data analytics, technology enables smarter decision-making and supports the move to Sustainability 3.0 — where services are proactive, adaptive, and human-centred.

A systems approach for resilient communities
The takeaway for APSE members is clear: it’s time to adopt a systems view. Frontline services, particularly highways, are not isolated functions but integral parts of wider social, environmental, and economic systems. By embracing whole-life thinking, prioritising material preservation, and fostering bold collaborations, local authorities can reshape their services for lasting impact.

As my final message emphasised: design for the future, embrace technology, sustain precious resources, rethink entrenched processes, and use waste as a resource — all while keeping future generations in sharp focus. Prioritise purpose, elevate consciousness, and above all, work together.
For local government leaders and practitioners, this is both a challenge and an invitation: to move beyond incremental change and seize the opportunity for scalable transformative action. The future of frontline services depends on it.

Helen Bailey presented at the APSE Highways, Street Lighting and Winter Maintenance Seminar on Thursday 20 March 2025 - as a dual professional in both the academic and private sectors, all views presented are her own.