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Cleddau Bridge

The Cleddau Bridge is a box girder road bridge in Pembrokeshire, Wales, that spans the River Cleddau estuary, connecting Neyland on the north bank to Pembroke Dock on the south bank while carrying the A477 trunk road.^[1]^[2] Designed by Sir Alexander Gibb and Partners in collaboration with Freeman Fox and Partners, it features a main span of 213 metres with a minimum headroom of 37 metres above the water, making it Europe's largest unsupported span at the time of its completion.^[2]^[3] The bridge also accommodates the Wales Coast Path and National Cycle Network Route 4, providing a vital link that replaced a ferry service and eliminated a previous 48-kilometre road detour for local traffic.^[2] Construction began after the contract was awarded in September 1968 to A.E. Farr Limited, with steelwork by Horseley Bridge and Thomas Piggott Limited, at an initial cost of £2.1 million and a planned completion date of March 1971.^[1]^[2] The project aimed to improve connectivity between northern and southern Pembrokeshire towns, as well as support access to oil refineries along the Milford Haven estuary by enabling 24-hour road travel.^[1]^[3] However, work was severely disrupted on 2 June 1970 when a 150-tonne, 70-metre section of the cantilevered box girder collapsed due to a design flaw involving insufficient diaphragm thickness, plummeting onto the hamlet of Pembroke Ferry below.^[3] The collapse resulted in the deaths of four construction workers—William Baxendale, George Hamilton, James Thompson, and Evan Phillips—and injuries to five others, marking it as the last major bridge disaster in the UK before stricter safety regulations were introduced.^[3] An official inquiry followed, recommending the addition of 152 metres of extra steel reinforcements, which halted construction until 1972 and ultimately increased the total cost to £12 million.^[3] The incident prompted new technical standards for box girder bridge construction across the UK, influencing policy and practice in civil engineering.^[3] The bridge finally opened to traffic in 1975, initially handling around 886,000 vehicles in its first year and growing to over 4.6 million annually by 2008–09, with ownership transferred to Pembrokeshire County Council.^[2] It underwent significant strengthening works between 2002 and 2004 at a cost of £4.4 million to ensure long-term durability.^[2] Tolls were imposed upon opening but were removed in April 2019 following Welsh Government funding of £3 million per year, making the crossing free for all vehicles and enhancing its role as a key infrastructure asset in the region.^[2]

Location and Significance

Geography

The Cleddau Bridge is located at coordinates 51°42′23″N 4°56′01″W in Pembrokeshire, Wales, spanning the estuary of the River Cleddau where it meets the Milford Haven Waterway.^[4] This positioning places the bridge at a critical point in the region's geography, crossing a deep, tidal estuary that historically divided the county into northern and southern halves.^[1] The structure connects Neyland on the north bank to Pembroke Dock on the south bank, forming a key segment of the A477 road and eliminating the need for a 28-mile road detour or reliance on ferry services that previously operated across the estuary.^[1] With a total length of 0.51 miles (0.82 km), the bridge accommodates road traffic, pedestrians, and cyclists, providing efficient transit over the waterway.^[4] It also briefly links areas supporting oil refineries on both shores, enhancing regional connectivity.^[5] Situated within the Pembrokeshire Coast National Park, the bridge offers views of the surrounding estuary, a vital habitat for wildlife including seabirds and marine species, while the Milford Haven Waterway below serves as a major shipping route for commercial vessels.^[6] The area's coastal environment features dramatic cliffs and tidal flows, underscoring the bridge's integration into a protected natural landscape.^[7]

Economic and Strategic Role

The Cleddau Bridge replaced the Neyland to Hobbs Point ferry service, which had operated across the River Cleddau estuary since the early 20th century and was discontinued in 1975 upon the bridge's opening.^[1]^[8] This transition addressed growing transportation demands driven by the expansion of Milford Haven as a major oil port in the 1960s, providing a reliable, 24-hour crossing capable of handling significantly higher volumes than the ferry, which accommodated up to 24 vehicles and 250 pedestrians per trip.^[1] Strategically, the bridge was constructed to link northern and southern Pembrokeshire, facilitating efficient transport between key industrial sites, including oil refineries at Milford Haven and Waterston on opposite shores of the estuary. This connectivity supported the influx of oil imports through Milford Haven, one of the UK's largest energy ports during the mid-20th century, by enabling smoother movement of goods, workers, and heavy vehicles across the region without reliance on seasonal or weather-dependent ferry operations. By providing a direct crossing, the bridge reduced the previous road detour of approximately 28 miles, enhancing overall logistical efficiency for the petrochemical industry and local commerce.^[1] In its first year of operation, the bridge recorded approximately 885,900 vehicle crossings, demonstrating immediate uptake and relief from ferry constraints. As of 2025, annual traffic averages around 4.4 million vehicles, underscoring its role as a vital artery for Pembrokeshire's economy, with daily flows supporting commerce between ports, towns, and the national road network via the A477 to the M4 motorway. Beyond industry, the bridge has boosted regional accessibility, aiding tourism by improving travel to coastal attractions and offering scenic estuary views that attract visitors for activities such as photography and fishing along the waterfront.^[1]^[9]

Design and Engineering

Structural Features

The Cleddau Bridge is a steel box girder bridge designed with cantilever sections by Sir Alexander Gibb and Partners in collaboration with Freeman Fox and Partners, featuring a main span of 213 meters across the River Cleddau.^[2] The structure comprises seven spans in total, with an overall length of 820 meters, and provides a clearance of 37 meters above high water to accommodate maritime traffic.^[9]^[10] The bridge employs steel box girders for the superstructure, supported by concrete piers that ensure stability in the estuarine environment. It is engineered to withstand significant wind loads, with closures implemented for high-sided vehicles exceeding 1.9 meters in height during gusts above 55 mph (88 km/h); full closure to all vehicles and pedestrians occurs when winds surpass 70 mph (113 km/h).^[11]^[1]^[12] In addition to vehicular traffic on the A477 road, the bridge incorporates dedicated pedestrian and cycle paths that form part of the Wales Coast Path and National Cycle Route 4, along with standard lighting for safe nighttime passage. The structure is managed and maintained by Pembrokeshire County Council.^[2]^[1]

Construction Techniques

The construction contract for the Cleddau Bridge was awarded in September 1968 to A.E. Farr Limited for £2.1 million, with steelwork fabricated by Horseley Bridge and Thomas Piggott Limited.^[1] Work commenced shortly thereafter, with initial efforts focused on site preparation and the construction of reinforced concrete piers and abutments to support the steel box girder deck.^[10] The primary construction technique utilized the cantilever method for erecting the continuous steel box girder spans, whereby segments were progressively extended outward from the piers toward the river's center.^[3] Each box girder section, weighing up to 150 tonnes, was prefabricated and lifted into position using mobile cranes positioned on the growing cantilever arms.^[13] Temporary supports, including trestles and bracing systems, were installed beneath the cantilevers to provide lateral and vertical stability during assembly, ensuring the structure could bear the increasing loads as spans advanced.^[14] This approach allowed for the efficient spanning of the 213-meter main navigation channel without extensive falsework over the water.^[10] By early 1970, the north and south approach spans had been completed through pier erection and girder placement. Construction of the main span proceeded until the collapse in June 1970. The subsequent Merrison Committee inquiry identified design flaws and recommended modifications, including reinforced diaphragms for enhanced lateral stability and revised monitoring and bracing protocols based on its interim rules (1971). These addressed vulnerabilities in temporary support systems and load distribution, halting construction until October 1972.^[10]^[15]

Historical Development

Planning and Initial Construction

The development of the Cleddau Bridge originated in the 1960s, driven by post-World War II economic expansion in Pembrokeshire, particularly the rapid growth of Milford Haven as a major oil import and refining center. This industrial boom increased traffic demands across the River Cleddau, rendering the existing ferry service between Neyland and Hobbs Point inadequate for handling larger volumes and 24-hour operations. The bridge was proposed to provide a reliable fixed crossing, eliminating the need for a 28-mile detour via upstream bridges and supporting connectivity to emerging oil refineries and port facilities.^[16]^[2]^[1] Planning for the bridge was integrated into broader improvements along the A477 road, which connects southern Pembrokeshire to Carmarthenshire, with approval secured to enhance regional transport links for industrial development. Initially referred to as the Milford Haven Bridge, the project received support from the UK government through the Welsh Office, reflecting national priorities for infrastructure to bolster economic growth in Wales. The design called for two structures: the main span over the Cleddau estuary and a smaller bridge across Westfield Pill to the north, ensuring comprehensive access. Funding was structured as a self-financing initiative, with tolls intended to cover construction debt over 50 years, though the total estimated cost stood at around £3 million.^[17]^[16]^[1] Construction commenced with groundbreaking in September 1968, when a £2.1 million contract was awarded to A.E. Farr Limited, with Horseley Bridge and Thomas Piggott Limited as subcontractors for the steelwork. Consulting engineers Sir Alexander Gibb and Partners, in collaboration with Freeman Fox and Partners, oversaw the design and early phases. Initial efforts focused on foundation work in the challenging estuarine conditions and the construction of approach roads to integrate the bridge with the A477 trunk route, aiming for completion by spring 1971 to meet rising traffic needs.^[1]^[2]^[16]

The 1970 Collapse

On 2 June 1970, during the cantilever construction of the Cleddau Bridge, a 150-tonne box girder section measuring approximately 70 metres in length suddenly collapsed from its position over the River Cleddau, crashing onto the hamlet of Pembroke Ferry below.^[3]^[18] The failure occurred while workers were lowering the section into place on the southern side of the bridge, leading to the structure buckling and plummeting to the ground below, narrowly missing residential areas but causing widespread destruction to the site and surrounding property.^[3]^[19] The collapse resulted in the deaths of four construction workers and injuries to five others. The fatalities were William Baxendale, George Hamilton, Evan Phillips, and James Thompson, all of whom were directly involved in the lifting and positioning operations at the time.^[3]^[18]^[19] Rescue efforts were complicated by the twisted wreckage and unstable debris, with emergency services responding immediately to extract survivors and secure the area.^[3] Investigations revealed that the primary cause was a design flaw in the bridge's steel box girder structure, specifically the inadequate thickness of the steel diaphragm above the pier, which buckled under the compressive forces and weight of the cantilevered section during erection.^[3]^[18] Contributing factors included insufficient lateral supports on the pier.^[20] Poor site organization and communication among the construction team were also cited as secondary issues that hindered effective response to emerging stresses.^[20] In the immediate aftermath, the entire construction site was evacuated, and work on the bridge was halted indefinitely to allow for a thorough safety assessment.^[3]^[18] An official inquiry, led by the Institution of Civil Engineers under the Merrison Committee, was promptly established to examine the incident alongside similar box girder failures, ultimately recommending significant design revisions such as reinforcing the structure with an additional 500 feet of steel plating to prevent buckling.^[3]^[21] These findings delayed the project by several years, with construction not resuming until October 1972.^[18]^[19]

Completion and Opening

Following the 1970 collapse, an official inquiry identified the primary cause as buckling of the diaphragm above the pier due to insufficient thickness, leading to a redesign that incorporated strengthened diaphragms and additional steel reinforcements—approximately 500 feet in total—to enhance structural integrity, along with rigorous stability checks during cantilever erection to prevent similar failures.^[3]^[18] These modifications, informed by new British Standards for box-girder bridges introduced post-inquiry, addressed vulnerabilities in the original design and construction methods.^[16] Construction resumed in 1972 after the investigation and redesign phase, significantly delaying the project from its original March 1971 completion target. The collapse and subsequent rework caused substantial cost overruns, with the total expenditure rising from an initial contract of £2.1 million to £11.83 million, attributed primarily to the halt in work, redesign efforts, and extended timeline.^[2]^[21] The bridge was officially opened to traffic on 20 March 1975, fully replacing the longstanding ferry service that had connected Neyland and Pembroke Dock since the 19th century. This event eliminated the need for the ferry crossings, streamlining regional travel and supporting economic growth in Pembrokeshire.^[1] In its early operations, the bridge experienced rapid adoption, with approximately 886,000 vehicles crossing in the first year, reflecting its immediate importance as a vital link despite the tragic history.^[2]

Operations and Management

Toll System

Tolls were imposed on the Cleddau Bridge from its opening on 20 March 1975 to finance the recovery of its £11.83 million construction costs, following significant overruns due to design changes after the 1970 collapse. Initial rates were set at 15p for motorbikes, 30p for cars, and 60p for heavy vehicles, charged in both directions to support debt repayment and operational expenses.^[22] These charges remained relatively stable over time, increasing to 75p for cars by the early 1990s, reflecting adjustments for inflation and maintenance needs while keeping rates affordable for local users.^[23] The tolls were managed by Pembrokeshire County Council, which operated collection booths and employed staff to handle payments.^[24] To address evasion issues, where drivers frequently avoided paying, automatic barriers were installed in 2004, transitioning to a more efficient system that improved compliance and revenue collection.^[4] Vehicle usage grew substantially under the toll regime, from approximately 885,900 crossings in the first year to over 4.4 million annually by the 2010s, demonstrating the bridge's increasing role in regional connectivity.^[25] Tolls were abolished on 1 April 2019 after the associated debts were fully cleared, marking the end of 44 years of charges and making the bridge free to all users.^[24] This decision was enabled by a Welsh Government agreement providing £3 million annually for 20 years to offset lost revenue and fund maintenance, celebrated locally as a boost to economic accessibility in Pembrokeshire.^[26] Over the decades, toll revenues not only recovered the initial construction overruns but also fully funded bridge maintenance, with annual income reaching around £3 million by the late 2010s—far exceeding early projections like the £1.08 million collected in 1988–89 alone.^[17] This financial model ensured the structure's upkeep without relying on general taxation until the abolition, after which government subsidies took over to sustain operations.^[9]

Closures and Safety Measures

The Cleddau Bridge is routinely closed to high-sided vehicles—defined as those with a body or cabin height exceeding 1.9 meters, such as lorries, vans, and caravans—when wind speeds reach 55 mph, with motorcycles, bicycles, and wind-sensitive loads advised against crossing during these restrictions.^[12] Full closures to all vehicles and pedestrians occur when wind speeds surpass 70 mph, determined by real-time monitoring of wind speed, direction, and weather forecasts by Pembrokeshire County Council.^[12] These protocols prioritize safety on the long-span structure, which exhibits heightened vulnerability to crosswinds due to its box-girder design.^[1] Maintenance of the bridge has been managed by Pembrokeshire County Council since 1996, with a dedicated engineering team conducting regular inspections to ensure structural integrity.^[27] Key works include resurfacing of approach roads in 2013, the first major update in approximately 30 years, and comprehensive strengthening and resurfacing of the bridge deck from 2002 to 2004 at a cost of £4.4 million to address wear and corrosion risks.^[28]^[2] Additional structural enhancements, such as pier head strengthening by specialist contractors, have been undertaken to mitigate corrosion and fatigue in the steel components.^[11] Long-term structural health monitoring, including sensors for environmental effects like temperature and quasi-static movements, supports ongoing assessments of bearing performance and overall stability.^[29] Closures for reasons beyond wind, such as structural inspections or accidents, are infrequent. A notable incident occurred on 5 September 2023, when a car collided with a 52-seater bus, resulting in one fatality and several injuries.^[30] Safety features include prominent signage warning of closures and height restrictions, enforced through potential prosecution for non-compliance, alongside pedestrian access that remains available during partial vehicle restrictions.^[12] Bridge status updates are provided via email alerts or text messages to facilitate safe travel planning.^[1]

Legacy and Remembrance

Memorial to Victims

A memorial plaque commemorating the four construction workers killed in the 1970 Cleddau Bridge collapse—William Baxendale, George Hamilton, James Thompson, and Evan Phillips—was unveiled on the 25th anniversary of the disaster in 1995, near the collapse site in the village of Pembroke Ferry.^[18]^[3] The plaque honored the victims, who were involved in assembling a box girder section of the bridge when the 150-tonne structure fell.^[31] The original plaque was reported stolen in August 2017.^[3] In response, Pembroke Dock Town Council commissioned a replacement to mark the 50th anniversary in June 2020, though the unveiling was delayed due to the COVID-19 pandemic and occurred later that year.^[32]^[31] The 50th anniversary prompted tributes and media coverage, including a BBC report featuring recollections from local resident and former first responder Phil Lloyd, who described the immediate chaos and continues to remember the victims annually on June 2.^[3] Families of the victims actively campaigned in the aftermath for safety improvements and against resuming construction over the village.^[3] The collapse deeply affected the small community of Pembroke Ferry, where residents like Ivy Lewis, who lived directly beneath the site, witnessed the devastation and received support amid the "utter pandemonium."^[18]^[3] Community members rallied to aid the injured and bereaved families in the hours following the incident, two of whom died en route to the hospital.^[33]

Engineering Lessons and Impact

The collapse of the Cleddau Bridge during construction in 1970 prompted the establishment of the Merrison Committee by the UK Department of the Environment to investigate the incident alongside the similar West Gate Bridge failure in Australia. The committee's interim report, published in 1971, identified critical deficiencies in the design and erection methods for steel box girder bridges, particularly the inadequate strength of vertical pier support diaphragms under compressive loads and the lack of rigorous load testing during cantilever erection. These findings emphasized the need for enhanced structural analysis to prevent buckling and recommended immediate assessments and reinforcements for existing and under-construction bridges, influencing the development of mandatory UK guidelines for diaphragm design and on-site monitoring.^[34]^[15] The Merrison Committee's final report in 1973 introduced the "Merrison Rules," a comprehensive set of design and workmanship standards that revolutionized steel box girder bridge engineering by mandating advanced stress analysis, independent third-party reviews, and stricter welding and fabrication protocols to mitigate instability risks. These rules were applied retroactively to 51 operational and 37 incomplete UK highway bridges, resulting in reinforcements such as up to 12.5% additional steel in affected structures, and they formed the basis for British Standard BS 5400 Section 10 on steel box girders. Globally, the guidelines inspired similar enhancements in box girder construction practices, promoting better quality control and erection sequencing to avoid recurrence of such failures, with no comparable construction collapses of this type reported in subsequent decades due to widespread adoption of these principles.^[34]^[35]^[36] Beyond technical advancements, the Cleddau Bridge has played a pivotal role in Pembrokeshire's regional development by providing a direct highway connection (A477) between northern and southern parts of the county, facilitating access to oil refineries and boosting economic integration that replaced unreliable ferry services. Completed in 1975 despite the setback, it stands as a symbol of engineering resilience, embodying lessons in perseverance and safety that continue to inform infrastructure projects. Culturally, the bridge's history has been highlighted in media, including BBC Wales coverage marking the 50th anniversary of the collapse in 2020, which explored its engineering legacy and drew public interest to the site's historical significance as part of Pembrokeshire's industrial heritage.^[1]^[2]^[3]

References

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