Planning matters

Roadside facilities are an essential part of the UK’s transport infrastructure. For motorists, the need for safe and convenient places to stop, rest, refuel and recharge is clear. That is not to say, however, that it has historically been straightforward, in planning terms, to make the case for roadside facilities, given their typical location alongside the strategic road network which means they are commonly located outside defined settlements. Whilst national and local planning policies recognise the importance of the safe operation of the highway network, the role of roadside facilities in achieving this is often overlooked.

However, the new NPPF, published in August 2026, provides potentially the biggest national policy change relating to roadside facilities in over a decade. For the first time, roadside facilities are explicitly recognised as important infrastructure with their own distinct policy.

 

Roadside facilities are more than simply places to refuel or recharge vehicles. They are multifunctional hubs that provide rest areas for drivers, essential welfare facilities such as toilets, and access to food and retail offerings.

As such, roadside facilities perform an essential welfare and safety function for road users, although this is often overlooked by decision-makers.

Whilst the NPPF does not define roadside facilities, National Highways defines roadside facilities as:

The development of modern roadside facilities, notably those that promote or focus on electric vehicle charging, is also important in helping to decarbonise our transport network.

Roadside facility developments will have a crucial role to play in rolling out EV charging infrastructure nationwide and helping to achieve a net-zero transport network. The Government aims to deliver over 300,000 EV charging points on the road network by 2030, with a robust and reliable charging network essential to encouraging the widespread adoption of electric vehicles. As explored in my blog post last year, ‘Planning Challenges: Decarbonising the UK Transport Network’ (read here), numerous planning challenges have stifled the rapid delivery of EV charging across the strategic road network. Policy support in the new NPPF should help to address this.

 

A range of sweeping policy changes has been introduced in the August 2026 NPPF. The following three policies are most relevant to roadside facilities:
 

Policy S5 sets out national policy for development outside settlements and defines limited acceptable exceptions for development outside settlement boundaries.

It is welcome that roadside facilities are listed as a form of development that is acceptable outside settlements, subject to the ‘presumption in favour of development’ balance, whereby the benefits of providing the development should outweigh adverse effects. Recognition of the specific operational requirements of roadside facilities is crucial because, given the need for facilities to be located on the strategic road network, they are often situated outside settlements. This is a positive change.

Policy TR5 sets out the criteria for the development of roadside facilities outside settlements. In summary, proposals should:

The policy also recognises the need to provide overnight lorry facilities where there is an identified deficiency.

This policy also aims to prevent the loss of existing roadside facilities unless alternative provision is being made, or it can be demonstrated that the facility is not needed or is no longer viable. Again, this demonstrates the national importance of roadside facilities on the strategic road network by ensuring they are retained where possible.

This new standalone policy relating to roadside facilities should encourage roadside developers and road users alike, as it recognises the important role these facilities play as key infrastructure.

 

A crucial part of compliance with Policy TR5 is demonstrating a need for roadside facilities.

While the NPPF does not prescribe a specific methodology, Lichfields has developed a robust approach to assessing the need for roadside facilities, covering both traditional fuelling and electric charging. Our methodology combines quantitative analysis with qualitative judgement, taking into account the scale, quality and range of services available at existing facilities. We also use GIS mapping to present this evidence clearly and spatially and to identify gaps in provision across the network. This approach provides a strong evidential basis for demonstrating need in a given area and supporting planning applications for new or enhanced roadside facilities.

The emphasis within Policy TR5 on improving access to EV charging is welcome and represents an important policy distinction if the Government wishes to achieve its aforementioned goal of providing 300,000 EV charging points on the road network by 2030. This theme also continues in Policy TR1.

Policy TR1 requires sustainable transport to be considered from the earliest stages of plan-making. Importantly, this includes planning positively for transport facilities that need to be located in an area or for their expansion and adaptation, such as roadside facilities on the strategic road network.

 

While the new NPPF is positive overall for road users, for those seeking to bring forward roadside developments and for efforts to decarbonise the road network through EV charging, the policy could have gone further in some areas by providing additional support for roadside development proposals.

In our experience, there is a lack of clarity and understanding about what constitutes a ‘roadside facility’ development. This ambiguity can delay the planning process, with some local planning authorities failing to recognise that smaller facilities can constitute roadside facilities and perform an essential road safety and welfare function.

To provide clarity and certainty, national policy should adopt a definition of ‘roadside facilities’ aligned with the National Highways definition referred to above.

This would remove ambiguity in the interpretation of the policy. It would also provide greater confidence to developers and local planning authorities, helping to accelerate the planning process.

The August 2026 NPPF does not acknowledge that roadside facilities often need to be supported by ancillary facilities, such as shops, cafés and restaurants. These uses are important because they help provide a meaningful welfare offer for road users, while also supporting the commercial viability of roadside facilities.

As a result, proposals for roadside facilities can become caught up in retail policy tests, including the sequential assessment, which seeks to direct main town centre uses, such as shops, cafés and restaurants, towards defined town centres. However, the specific function of roadside facilities means they are not normally suitable for town centre locations. Requiring proposals for roadside facilities to demonstrate compliance with the sequential test can therefore create an unnecessary burden for applicants and local authorities alike. National policy should recognise the distinct characteristics of roadside facilities and the need for supporting facilities that provide for the welfare of road users outside defined town centres, thereby reducing unnecessary policy hurdles.

 

 

In summary, the August 2026 NPPF represents a positive step forward for proposals for roadside facilities. Further guidance would, however, be welcomed to reduce ambiguity and avoid unnecessary burdens arising from retail policy tests. Overall, the updated NPPF provides greater clarity on what is expected of proposals for roadside facilities and should help accelerate the delivery of EV charging infrastructure, which will be crucial to achieving a net-zero transport network. It should also support the delivery of the wider roadside infrastructure needed to meet the expectations of the modern motorist.