PFD report

Luke James LYONS · Prevention of Future Deaths report

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Issued 17 Sep 2013•Exeter & Greater Devon

Report record

Published report and response evidence

This page connects the concerns raised in this report with statements found in recipients’ published responses. A link shows a clear evidence connection; it does not assign responsibility.

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Concerns
1

Raised in this report

Recipients
1

Named on the report

Responses found
1

Of 1 recipient

Stated actions
9

Described in responses

Recipients and published responses

Source document

Full report text

This is the full text from the original published report.

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Concerns and recipient responses

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Report evidence summary

Concerns raised1

  1. Inadequate drainage to prevent water crossing the road and washing away road gritting
    Part of recurring concern: Inadequate drainage control of hazardous surface water on public routesPart of recurring concern: Inadequate road drainage allowing hazardous surface water to remain on carriageways
Responses linked to these concerns

Each statement is shown once, even when linked to more than one concern.

Actions described in response An action is something a recipient says it has done, is doing, or plans to do in response to a concern raised.5

  1. Action

    Use drainage features and best-practice measures within the 2013/14 winter maintenance approach.

    Stated by Devon County CouncilStated plannedThe respondent said that this action was planned when they made their response on 17 September 2013.
  2. Action

    Communicate the commitment to fit-for-purpose winter maintenance work and improve communication and management of drainage features among relevant staff.

    Stated by Devon County CouncilStated in progressThe respondent said that this action was in progress when they made their response on 17 September 2013.
  3. Action

    Undertake further weather-response treatments on the A396 in support of precautionary winter gritting routes.

    Stated by Devon County CouncilStated plannedThe respondent said that this action was planned when they made their response on 17 September 2013.

Respondent positions A position is what a recipient says about a concern when it does not describe a specific action.1

  1. Position

    Flooding at the A396 was difficult to predict, and inspections had not identified recurring drainage issues at the location.

    Stated by Devon County CouncilDisputes the concernThe respondent disagreed with part of the concern or the basis for it.

Source evidence

How this individual concern was interpreted

PFD Monitor created a concise, searchable interpretation from the report wording shown below. Response links show a clear evidence connection; they do not assign responsibility.

PFD Monitor interpretation

Inadequate drainage to prevent water crossing the road and washing away road gritting

Wider context from the report

“I received evidence that the area in question was subject to water egress from the land at the side of the road which flowed from the higher ground across the road, thereby washing away any salt gritting put down by the Highway Department in anticipation of bad weather. It was clear that procedures were followed, gritting undertaken which it was anticipated would have satisfied the need for gritting in the area in question in the absence of the localised water problem. I received evidence that a number of vehicles going through this area also lost control despite the gritting but had managed to counteract the loss of control. I understand that the Highways Department have since placed a drain at the location in order to combat the problem but it appears that it is inadequate (from information received from ████████ of Devon and Cornwall Constabulary). Clearly a repetition of Luke’s death in the forthcoming winter would be a disaster if it could be avoided by further action. ”

Is this part of a recurring concern?

Yes — Inadequate drainage control of hazardous surface water on public routes; Inadequate road drainage allowing hazardous surface water to remain on carriageways.

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Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Use drainage features and best-practice measures within the 2013/14 winter maintenance approach.

Verbatim wording from the response

“Our plans for the 2013/14 winter period therefore include the use of the drainage features and best practice and we will continue to use our inspection process and intelligence gathering to inform our approach. We will also use the media to communicate this information to travellers.”

Source location

2013-0203-Response-by-Devon-County-Council
Page 2 · response
Published 17 September 2013

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Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Communicate the commitment to fit-for-purpose winter maintenance work and improve communication and management of drainage features among relevant staff.

Verbatim wording from the response

“The commitment to ensuring that the work has been fit for purpose and helps to prepare us for a level of inspection for this location, following our winter maintenance routes and procedures, has been communicated to all relevant staff. This will include improved communication and management of the drainage features.”

Source location

2013-0203-Response-by-Devon-County-Council
Page 2 · response
Published 17 September 2013

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Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Undertake further weather-response treatments on the A396 in support of precautionary winter gritting routes.

Verbatim wording from the response

“In tandem with the special treatments taken on the A396 last winter and in support of the treatments undertaken throughout our precautionary gritting routes, Devon County Council will undertake further treatments in support of the response to the weather conditions.”

Source location

2013-0203-Response-by-Devon-County-Council
Page 1 · response
Published 17 September 2013

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Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Continue inspections, intelligence gathering and risk assessment to inform responses to severe weather and drainage conditions.

Verbatim wording from the response

“As you noted within the letter, the flooding on the A396, with water practically spilling onto the road, was a result of the conditions and would be difficult to predict. Our staff seeing this road and were thought to be proportionate to the predicted conditions. Our configuration of the road, together with the conditions at the time, meant that, for the most part, water was not going over the centre of the carriageway. The issues on sight lines, public, and our inspections have not noted recurring drainage issues. This further suggests that any water on the carriageway will be picked up and removed from the carriageway, before the saturated water flows above the carriageway. We accept the types of weather events to repeat in future and our inspections and risk assessment will continue to respond to this.”

Source location

2013-0203-Response-by-Devon-County-Council
Page 1 · response
Published 17 September 2013

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Complete works at the A396 junction and review drainage management at that location.

Verbatim wording from the response

“Since the incident involving Mr Lyons, we have undertaken work at the junction of the A396 and have reviewed the way in which drainage is managed at this location. We have also reviewed the winter service arrangements over the winter period, and these support measures will continue throughout the coming winter.”

Source location

2013-0203-Response-by-Devon-County-Council
Page 2 · response
Published 17 September 2013

Open published response

Source evidence

How this respondent position was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Flooding at the A396 was difficult to predict, and inspections had not identified recurring drainage issues at the location.

Verbatim wording from the response

“As you noted within the letter, the flooding on the A396, with water practically spilling onto the road, was a result of the conditions and would be difficult to predict. Our staff seeing this road and were thought to be proportionate to the predicted conditions. Our configuration of the road, together with the conditions at the time, meant that, for the most part, water was not going over the centre of the carriageway. The issues on sight lines, public, and our inspections have not noted recurring drainage issues. This further suggests that any water on the carriageway will be picked up and removed from the carriageway, before the saturated water flows above the carriageway. We accept the types of weather events to repeat in future and our inspections and risk assessment will continue to respond to this.”

Source location

2013-0203-Response-by-Devon-County-Council
Page 1 · response
Published 17 September 2013

Open published response

Other statements in published responses

These actions and other statements could not be clearly connected to one concern in this report.

Recipient-stated actions An action is something a recipient says it has done, is doing, or plans to do in response to a concern raised.4

  1. 1

    Communicate winter road, drainage and weather-response information to travellers through the media.

    Stated by Devon County CouncilStated plannedThe respondent said that this action was planned when they made their response on 17 September 2013.
  2. 2

    Monitor and review A396 winter service arrangements and additional safety measures as necessary.

    Stated by Devon County CouncilStated in progressThe respondent said that this action was in progress when they made their response on 17 September 2013.
  3. 3

    Circulate the revised winter maintenance plan to all relevant staff.

    Stated by Devon County CouncilStated completedThe respondent said that this action was complete when they made their response on 17 September 2013.
  4. 4

    Review winter service arrangements and continue the associated support measures throughout the coming winter.

    Stated by Devon County CouncilStated in progressThe respondent said that this action was in progress when they made their response on 17 September 2013.

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Communicate winter road, drainage and weather-response information to travellers through the media.

Verbatim wording from the response

“Our plans for the 2013/14 winter period therefore include the use of the drainage features and best practice and we will continue to use our inspection process and intelligence gathering to inform our approach. We will also use the media to communicate this information to travellers.”

Source location

2013-0203-Response-by-Devon-County-Council
Page 2 · response
Published 17 September 2013

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Monitor and review A396 winter service arrangements and additional safety measures as necessary.

Verbatim wording from the response

“The winter service arrangements at the A396 and the additional measures taken by Devon County Council will be monitored and reviewed as necessary. We will ensure that appropriate action is taken should conditions deteriorate.”

Source location

2013-0203-Response-by-Devon-County-Council
Page 2 · response
Published 17 September 2013

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Circulate the revised winter maintenance plan to all relevant staff.

Verbatim wording from the response

“Our revised winter maintenance plan has been circulated to all staff and this intervention has been observed to date as expected and according to its design.”

Source location

2013-0203-Response-by-Devon-County-Council
Page 2 · response
Published 17 September 2013

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Review winter service arrangements and continue the associated support measures throughout the coming winter.

Verbatim wording from the response

“Since the incident involving Mr Lyons, we have undertaken work at the junction of the A396 and have reviewed the way in which drainage is managed at this location. We have also reviewed the winter service arrangements over the winter period, and these support measures will continue throughout the coming winter.”

Source location

2013-0203-Response-by-Devon-County-Council
Page 2 · response
Published 17 September 2013

Open published response
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Information checked against the published report and official responses · Data reviewed 7 Sep 2026 · About data quality and limitations

Official responses located
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Data last updated 7 September 2026