Reclaiming Our Rural Highways - the Dorset AONB

RECLAIMING RURAL HIGHWAYS
Published by the
Dorset AONB
Partnership 2005
Reclaiming Our Rural Highways
A scoping report on issues affecting
the character of roads and streets in rural Dorset
Working Together for Dorset’s Outstanding Countryside

Acknowledgements
Author: James Purkiss, Halcrow
With particular assistance from: Sarah Bentley, Dorset
AONB Partnership, and Stephen Hardy, Dorset County
Council
With contributions from: Countryside Agency (Alison
Rood), Dorset AONB Partnership (Doug Harman), Dorset
County Council (Sarah Barber, David Dawkins, Andy
Elliott, John Lowe, Phil Sterling, Andy Tate & Rod Webb)
English Nature (Jim White), Kate Freeman, Friends of
the Lake District (Jack Ellerby) Halcrow Group
(Steve Morgan, Andrew Linfoot, Clare Simmons)
Gloucestershire County Council (Alexandra Luck), Kent
County Council (Richard Emmett), Quantocks AONB
Service, Slower Speeds Initiative, Suffolk County Council
(Ruth Stokes), Sustrans (Jonathan Bewley), West
Berkshire Council (Jenny Noble)
Thanks to all the organisations, committees and
individuals who have contributed to the development
of this Plan.
Acknowledgements
Photographs used by kind permission of:
• Common Ground
• Dorset AONB Partnership
• Dorset County Council (Stephen Hardy, Mark Simons)
• Dorset Engineering Consultancy (Julian McLaughlin)
• Friends of the Lake District
• Halcrow Group (James Purkiss)
• Images of Dorset (John Allen)
• Kent County Council (Richard Emmett)
• The National Trust
• North Dorset District Council
• Quantock Hills AONB Service
• Suffolk County Council (Ruth Stokes)
• Sustrans (John Grimshaw, Steve Morgan)
• Transport 2000 (Graham Smith)
Designed and produced by Origin Designs Ltd.
Maps are based upon Ordnance Survey material with the
permission of Ordnance Survey on behalf of the
Controller of Her Majesty's Stationery Office. (C) Crown
Copyright 2001. Unauthorised reproduction infringes
Crown copyright and may lead to prosecution or civil
proceedings. (C) Dorset County Council. LA 076570.
2001.Office. (C) Crown Copyright 2002.
Acknowledgements

Contents
4 4
Contents
Page
Foreword 4
Executive Summary 6
1.1 Setting the scene 6
1.2 The first step 6
1.3 New approaches to rural roads 7
1.4 Future Steps 7
Section I: Overview of issues and problems 8
2.1 Rationale for the study 9
2.2 Aim of study 11
2.3 The importance of Dorset’s environment 11
2.4 The importance of Dorset’s rural roads 13
2.5 The importance of design 15
2.6 Insensitive design of rural roads 15
2.7 Policy Context 17
Section II: Evaluation of rural road management methods 21
3 De-cluttering and quality design 22
3.1 Introduction to chapter 22
3.2 Clutter removal 24
3.3 Amalgamation and multi-functionality 24
3.4 Improved design 24
3.5 Improved street and road boundary material design 25
3.6 Improved signage design 26
3.7 Improved design of other street features 30
4 Protecting the natural and built environment 32
4.1 Introduction 32
4.2 Conserving ecology 32
4.3 Wildlife 34
4.4 Light and noise pollution 34
4.5 Conserving archaeological and historic features 36
4.6 Conserving the historic environment: signs 36
4.7 Conserving the historic environment: other built features 37
5 Managing traffic: traffic calming and traditional measures 38
5.1 Traditional measures 38
5.2 Traffic calming and environmental enhancement 39
5.3 Dealing with ‘rat runs’ 40
5.4 Dealing with inappropriate vehicle speeds 41
5.5 Applying a structured speed limit regime 41
5.6 Speed limit enforcement 44
6 Managing traffic: innovative measures 46
6.1 Can highway design be improved? 46
6.2 Successful design: the Dorset perspective 48
6.3 The application of psychology 48
6.4 Changing attitudes 50
6.5 Shared spaces 50
6.6 Reassessing village roads 52
6.7 Reassessing rural lanes 53
6.8 Removal of white line markings 54
6.9 Reassessing road junctions 55
7 Route functions: which routes for which users? 56
7.1 Introduction: functional use versus leisure use 56
7.2 Strategic functions 57
7.3 Direction signing 60
8 Route functions: non-motorised users 62
8.2 Rights of way: issues and problems 62

Contents
Page
8.3 Planning for rights of way 63
8.4 Planning for non-motorised use of rural roads 64
8.5 Planning for pedestrians 64
8.6 Planning for cyclists 65
8.7 Planning for equine traffic 66
8.8 Comprehensive planning for non-motorised users: quiet lanes 67
9 Policy, guidance and hierarchies 68
9.1 Policy and guidance 68
9.2 Local publications 68
9.3 Categorisation and hierarchies 69
9.4 Assessing areas or specific roads 70
9.5 Summary 71
10 Maintaining the roads 72
Section III: Dorset’s distinctiveness 75
Introduction: Dorset’s streetscape features 75
11 Roadside surfaces and boundaries 76
11.1 Surfaces 76
11.2 Hedges 76
11.3 Walls 77
11.4 Fences and railings 77
11.5 Gates 77
11.6 Trees 77
11.7 Verges 78
11.8 Townscapes 78
11.9 Bridge designs, materials and name plaques 80
11.10 Fords 81
12 Roadside features 82
12.1 Raised footways 82
12.2 Turnpike artefacts 82
12.3 Public utility furniture 83
12.4 Place name signs 84
12.5 Street nameplates 84
12.6 Fingerposts 84
12.7 Other roadside features 86
13 Statutory protection and current information 88
13.1 Overview 88
13.2 Designations 88
13.3 Information 90
14 Characterising Dorset’s rural roads 92
14.2 Blackmoor Vale 92
14.3 Dorset Downs 93
14.4 Dorset Heaths 93
14.5 South Purbeck 94
14.6 Weymouth Lowlands 94
14.7 Marshwood and Powerstock Vales 94
14.8 Yeovil Scarplands 95
14.9 Blackdown Hills 95
14.10 Classifying routes in Dorset according to individual road character 95
Section IV: Summary and recommendations 97
15 Conclusions 98
15.2 Recommendations 100
16 Glossary and Bibliography 102
Glossary 102
Bibliography 102
Contents
5

6
Foreword
"More sympathetic management of rural roads will
make a tremendously positive contribution to the
conservation and enhancement of the Dorset AONB.
I hope this document will help to bring this about, and
perhaps encourage and help other Partnerships and
authorities to tackle this issue."
Alan Swindall, Chairman,
Dorset AONB Partnership
"The IHIE has, for several years, been championing
engineers and designers to push the boundaries when
influencing the design of residential highways in new,
high quality urban development settings.
I am very pleased therefore that we are now also at
the forefront of applying the same concepts to
influencing the consideration of highways in high
quality rural landscape settings.
In particular I am pleased that the Institution has
been involved in work that will lead, potentially, to
the deurbanisation of highways across Dorset's
beautiful landscape"
Gerry Harvey, President,
Institute of Highway Incorporated Engineers 2004-2006
"Rural roads contribute to local distinctiveness and
require sensitive management in order to retain their
distinctiveness. The Countryside Agency supports
exemplary practice for all roads in designated
landscapes, and endorses this publication as a
positive step in preserving and enhancing the special
features of the AONB."
Alison Rood, Countryside Agency
"English Nature welcomes this novel report
since there is a wealth of characteristic biodiversity
along our rural road verges... there are opportunities
to enhance this with appropriate and sympathetic
management practices or new plantings, to benefit
wildlife and to enrich our experience of using the
rural roads network".
Jim White, Dorset Team Leader,
English Nature
"...the environment through which people travel
whether by car, bus, cycle, horseback or on foot is
becoming more important as safety and traffic
congestion issues begin to dictate how road design is
altered to bring about changes in driving behaviour,
removing traffic from villages and ensure that it can
keep moving.
I think anything that can be done to recognise the
historic importance of routes should be welcome and
that any traffic hierarchy model should include in its
criteria the importance of the history and use of routes."
Jo Burgon, Travel Group Chairman,
The National Trust
"The historic environment can easily be eroded
by a plethora of unnecessary signs. Careful use
of signs and road markings, and retention of items of
interest such as rural fingerposts, not only reinforces
character but can form part of a successful traffic
management approach."
Jenny Frew, Senior Policy Officer, Transport,
English Heritage

Dorset’s landscape is one of the most precious and
varied in the country – with a wealth of statutory
designations to prove it! These reflect not only the
tremendously rich natural environment, but also the
historical built environment as well. Inextricably linked to
both are the man made routes across the county – some
established thousands of years ago. Many of these routes,
along with the characteristic features that have developed
alongside them, have an intrinsic and historical value.
Over recent years, traffic volume and speed has
increased considerably, resulting in concerns over
environmental impacts and safety. The way we manage
our network of highway routes has huge implications for
our communities, visitors and our environment. It is of
course essential that we ensure the safety of all highway
users. It is equally essential however that we minimise,
or better still reduce, the detrimental engineered impact
of highway management and use on our countryside. We
need to keep Dorset’s landscape special for all to enjoy
now and in the future.
Our rural roads are being urbanised and degraded by an
increasing quantity of signs, kerbs, road markings and
other street furniture. We know that we can do better;
indeed, in Dorset we have learnt much about
incorporating highways into high quality urban design. It
is time we translated these skills in the rural setting. It is
a policy objective of the Dorset AONB Management Plan
to ensure that road design, signage and maintenance are
sympathetic to the character of rural roads in the AONB.
Responding to this and through the Dorset AONB
Partnership, working jointly with Dorset County Council
as Local Highway Authority, a commitment has been
Foreword
made to develop new approaches to highways. This
study is the first step; it catalogues the issues and how,
with flexibility of thinking, they have been tackled
elsewhere, providing a valuable evidence base. It also
sets the Dorset scene, highlighting the special features
we want to keep. But most of all, this study sets us a
challenge - one that we must work hard to meet.
During the extensive contact with other authorities,
AONBs and National Park Authorities made in
researching this study, we have received many requests
for copies of the finished report. This is clearly an issue
that resonates across many rural landscapes.
Consequently, we hope that by publishing our findings so
far, we may help encourage other protected landscape
teams and local highway authorities to take up the challenge.
I look forward to working with all the partners in the
ongoing work in Dorset. Our intended result is to bring
forward design and management guidance that will
inform the implementation of transport network
improvements and development with designs that are
appropriate to Dorset’s local context and reinforce local
distinctiveness throughout the county.
Councillor Hilary Cox
Environment Portfolio Holder,
Dorset County Council
Dorset AONB Partnership
Board Member
7

Chapter 1: Executive Summary
8 8
1.1 Setting the scene
Chapter 1: Executive Summary
1.1.1 Rural Dorset has a high quality built, cultural and
natural heritage envied by many, with a great
diversity of landscapes. The county’s combination
of countryside, villages, small towns and coastline
contributes to a high quality of life for residents
and visitors.
1.1.2 Roads are an intrinsic part of the landscape which
surrounds us. Most roads and lanes are much
older than the buildings which line them and
evidence of Roman and older routes remain in the
county today. Which came first – the river crossing
at which a village grew up, or the route to connect
the existing villages?
1.1.3 The county’s highly prized environment is not
without significant threats to its well-being and the
rural roads that lace it are no exception to this.
Traffic volumes continue to rise across this
network, and as congestion worsens on the major
roads, traffic is finding alternative, less suitable
routes. The rising public awareness of new tourist
destinations is resulting in new travel patterns and
larger numbers of visitors to the county. This is
compounded by the county’s fast population
growth expanding into a largely unimproved
road network.
Rural Dorset is famed for the quality of its environment
1.1.4 Traditional responses to the pressures of
increasing traffic volumes on narrow, unimproved
roads were to widen and straighten them. These
traditional ‘improvement’ approaches have led to
the proliferation of signs and road markings
which are not always sympathetic to the rural
environment. They have also led to the character,
ecology and archaeology of rural areas being
damaged. Such engineered improvements can
lead to increased vehicle speeds and can deter
travel by horseriders, walkers and cyclists. It is
unlikely that these outcomes were intentional
but instead reflect the current incremental,
engineered, crisis-response approach to rural
road management.
1.2 The first step
1.2.1 The Dorset AONB (DAONB) Management Plan
identified many of the above issues as being in
conflict with the statutory duty to conserve and
enhance the AONB. This led to the inclusion in the
Plan of an objective (policy TR4) to:
‘Ensure that road design, delivery, signage
and maintenance are sympathetic to the
special character of rural roads and
the AONB’

1.2.2 This document, Reclaiming our Rural Highways,
is the first step towards ensuring that the special
character of rural roads is understood and taken
account of in design and management decisions.
It draws together information on rural road
management from a wide variety of sources and
outlines each of the pertinent issues using case
studies from Dorset and elsewhere to identify
solutions. The topics covered are often equally
applicable to other parts of rural England, and indeed,
in essence to Scotland, Northern Ireland and Wales.
1.2.3 Reclaiming our Rural Highways is aimed at all
those with an interest in rural roads and their
management. It acts as a significant
contemporary reference for the wide range of
interests and professions that are involved with
the functions, management and work of rural areas.
In practice, it is intended to inform future design
and conservation-led decision-making by Local
Planning Authorities and Local Highway Authorities.
1.3 New approaches to rural roads
1.3.1 Whilst the issue of looking after rural roads is a
complex one, there are many examples which
illustrate that innovative and sympathetic
approaches to problem solving are possible. Of
particular interest are approaches which:
• create shared spaces, where the traditional
distinction between space for pedestrians and
space for vehicles is minimised or abolished;
• use inherently rural features such as hedges,
banks, walls, the position of buildings and bridges
as features to naturally calm traffic;
• ensure that clutter is kept to the minimum
necessary for the safe operation of the road network;
• ensure that whatever works are carried out conserve
and enhance the local distinctiveness of the county.
1.3.2 Dorset is recognised as a county in which leading
examples of the design and layout of new, high
quality, locally distinctive, development in rural
areas can be found. It is the aspiration of the
Dorset AONB Partnership that Reclaiming our
Rural Highways will ensure that our rural road
designs are as good as these award-winning
residential and mixed-use developments.
1.4 Future steps
1.4.1 Reclaiming our Rural Highways is divided into
four sections.
1.4.2 The first section provides an overview of the key
issues. It shows how roads form an important part
of Dorset’s landscapes and examines how road
Executive Summary
design can influence and alter the landscape and
streetscape. It discusses how Dorset’s recognised
success in designing new residential estates with
innovative highway layouts can give pointers to
improve rural road design.
1.4.3 The second section discusses and evaluates the
wide range of problems that affect rural roads,
and methods which have been applied to manage
them. The sometimes significant drawbacks to
adopting traditional approaches are explained.
Included are case study examples from
elsewhere in the country that demonstrate
sympathy with rural character, such as:
• The de-cluttering initiatives in the Lake District;
• The alternative methods of protecting and
maintaining rural lanes in West Kent;
• The trial to remove white carriageway centre line
markings in Wiltshire villages;
• Traditional fingerpost restoration and renewal in
the Quantocks; and
• The streetscape enhancements pioneered in Bury
St Edmunds and other historic towns.
1.4.4 The third section discusses the distinctive
character of Dorset’s roads. There is a great
variation in their character, from those across
open heathland in Purbeck to the sunken lanes of
West Dorset. A great deal of the character of
these roads emanates from the locally distinctive
Dorset features which bound them such as the
hedges, milestones and pre-1964 fingerposts.
1.4.5 The fourth and concluding section advocates a
series of recommendations for future action
including:
• the preparation of a guidance document to
promote a better public realm through improved
highway design which responds to local context
and embraces local distinctiveness;
• the creation of a hierarchy of highways – all of
which respect the rural environment – and
includes heavy vehicle, coach and tourist
routeing, strategic co-ordination of direction
signing for all vehicles and the reassessment of
speed limits;
• a checklist of items to take into account when
undertaking projects which will affect rural roads;
• the increased involvement of parish councils as
local agents for positive change; and
• the inclusion of policy statements in Local
Transport Plans, Local Development Frameworks
and Regional Spatial Strategies to reinforce the
need for action.
Chapter 1: Executive Summary
9

Section I: Overview of issues and problems
Milton Abbas: Roads form part of Dorset’s famous built and natural heritage
• Rationale for the study
• Aim of the study
• The importance of Dorset’s environment
• The importance of Dorset’s rural roads
• The importance of design
• Insensitive design of rural roads
• Policy context
Chapter 1. Introduction

“The country road was once part of the distinctive and unspoiled character of our
countryside, blending into the countryside Chapter and indistinguishable 1: Introduction from it...car drivers would
'feel' the road and visually 'read' the road to determine the appropriate speed to travel... in
recent decades the character of many rural roads has incrementally changed - more traffic...
more kerbing and additional roadside clutter” [Friends of the Lake District (FLD) 2005:2]
Chapter 2: Overview of issues and problems
2.1 Rationale for the study
2.1.1 Local authorities, along with a series of other
bodies, have a statutory duty of care to Areas of
Outstanding Natural Beauty (AONBs). Section 85
of the Countryside & Rights of Way Act 2000
states that:
‘In exercising or performing any functions in
relation to, or so as to affect, land in an area
of outstanding natural beauty, a relevant
authority [Minister of the Crown, public
body, statutory undertaker or person holding
public office] shall have regard to the
purpose of conserving and enhancing the
natural beauty of the area of outstanding
natural beauty.’
2.1.2 The same Act required a Management Plan to be
prepared for each AONB area by the local
authorities which covered them. These Plans both
set out issues affecting the area and ways in
which these are to be tackled. The consultation on
the Dorset AONB (DAONB) Draft Management
Plan found that rural road management was a key
concern and this led to incorporation of the
East Lulworth
issue within the document. The vision of the
completed Plan notes that:
‘With new approaches from practitioners
and policymakers and a change in the way
people use the road network, it can withstand
the pressures put upon it by traffic and
non-motorised users and remain a
complementary element of the Dorset AONB.
With a variety of travel options, the entire
network of roads, footpaths, cycleways and
bridleways together with safe and convenient
public transport provides sustainable access
and movement around the AONB’ [DAONB
2004:42]
As a result, a series of aims and policy objectives
were included in the Management Plan on the
subject, as outlined in Table 2.1 on the next page.
Chapter 2. Overview of issues and problems
11

Chapter 2. Overview of issues and problems
1212
Section I: Overview of issues and problems
The Management Plan set out the aims and
objectives to improve rural road management
techniques
2.1.3 Table 2.1: Management Plan aims and
objectives for rural roads[DAONB 2004:100]
Aims
• Provide sustainable travel options for residents
and visitors
• Reduce the impact of traffic within the AONB
and promote a better balance of road use
• Ensure that the location and management of
route and road corridors has regard to the
AONB primary purpose of conserving and
enhancing natural beauty
Objectives
Policy TR1
Support the development of options for greater
transport choice
Policy TR2
Develop and promote a fully integrated transport
system that fulfils the needs of residents and
visitors to the AONB
Policy TR3
Support and develop initiatives that change
priorities for road use on rural roads, making them
safer for non-car users
Policy TR4
Ensure that road design, delivery, signage and
maintenance are sympathetic to the special
character of rural roads and the AONB
Policy TR6
Ensure that the environmental and visual impact
of car parking is minimised in the AONB
2.1.4 Current approaches to improving road design and
the need for action were reviewed at the three
respective Heritage Committees for North Dorset,
Purbeck and West Dorset [West Dorset DC 2004,
Purbeck DC 2004, North Dorset DC 2004].
Positive feedback from these led to the
commissioning of this study. A senior level
meeting on the design and management of rural
roads was held on the 27th January 2005 at the
Brownsword Hall in Poundbury, Dorchester to
ensure the involvement of all the major agencies.
2.1.5 It is now recognised that, in order to achieve
acceptable levels of highway design quality, it
is necessary to abandon what is sometimes
termed the ‘Scalextric’ approach to design.
Traditionally this has involved taking standard
designs with predetermined cross-section widths
and construction depths and implementing these
according to a rigid hierarchy. Traditionally each
road type in a hierarchy had three components:
• Firstly, it had standardised, prescribed, surface
dimensions deemed sufficient to accommodate
the volume and types of users identified as
appropriate to its place in the hierarchy;
• Secondly, it had to be structurally strong enough
to withstand the axle loads imposed on it for a
determined period;
• Thirdly, it had basic visual characteristics
determined by its function in the hierarchy.
2.1.6 In short, the three components are:
1. Width (dimensions and geometry)
2. Depth (construction layers)
3. Visual characteristics contributing to
local distinctiveness
2.1.7 The drive for higher quality design has
necessitated a review of the approach taken to
the third of these components – the visual
characteristics of the highway. This study
principally examines how this third component
can be used to influence driver behaviour and
ensure Dorset’s rural roads are locally distinctive.
2.1.8 This study specifically examines routes available
for the public’s use across the DAONB. This
comprises all public roads, including unmetalled
ones, together with the Public Rights of Way
(PROW) network of byways, bridleways and
footpaths. Routes in small towns and villages are
included, since they sit within rural contexts
[Roberts James, 2001]. It additionally has
relevance for the A35 Trunk Road, which
contains several sections of unimproved single
carriageway (although rural Trunk Roads are not
included in the Institute of Highways & Trunk

Section I: Overview of issues and problems
Roads Transportation (IHT) definition of rural
roads [Friends of the Lake District (FLD) 2005)].
2.1.9 Although prepared for the DAONB Partnership,
most of the principles – and solutions – examined
have equal relevance for the rest of the rural
county.
2.2 Aim of study
2.2.1 The study’s aims were as follows:
(i) To collate information on methods used to
manage rural routes elsewhere and assess their
applicability to Dorset;
(ii) To investigate route network hierarchies
appropriate for the rural area;
(iii) To characterise the rural routes in Dorset
according to their landscape character setting,
historic development, or features critical to
management;
(iv) To identify streetscape features unique or
special to Dorset requiring specific management
or conservation; and
(v) To recommend a way forward, including items for
inclusion within a protocol or design guide document .
2.3 The importance of Dorset’s
environment
2.3.1 In a recent survey, safeguarding Dorset’s unique
environment was identified by residents as the top
priority for action [Dorset Strategic Partnership
2004]. Dorset is endowed with a great diversity of
landscape character [Countryside Commission
1999] and the county enjoys some of the highest
quality rural and built environments in the country.
2.3.2 This environmental quality is recognised with a
range of designations to protect it. 53% of the
county is situated within Areas of Outstanding
Natural Beauty (AONBs) – a proportion of the
county second only to that of East Sussex [Dorset
CC 2003]. 42% of the county is within the Dorset
AONB (DAONB) [Dorset CC 2004a] and 11% lies
within the Cranborne Chase & West Wiltshire
Downs AONB, which straddles the county
boundary.
2.3.3 The area covered by the DAONB is illustrated in
Figure 2.1 overleaf. Broadly speaking, it stretches
from Swanage in the east to Lyme Regis in the
west and from Beaminster to Blandford. This is a
rich and varied landscape composed of chalk
downland, heathland, coastal habitats and the
wetlands around Poole Harbour, giving the AONB
its special character. The DAONB Management
Plan has an overall vision for the area to be:
‘a thriving landscape of beauty, health and
heritage that all can enjoy. An inspiration for
today, an opportunity for tomorrow’
[DAONB 2004:40]
2.3.4 Much of the county has additional ecological,
cultural heritage or landscape designations. The
coastal fringe is a UNESCO-designated World
Heritage Site; more generally the coastal areas
are designated as Heritage Coasts. The county’s
ecological diversity is acknowledged by the
designation of EU Special Areas of Conservation
(SACs) and Special Protection Areas (SPAs),
National Nature Reserves and Sites of Special
Scientific Interest (SSSI). The built environment is
protected by a significant number of listed
building designations and many settlements
have conservation areas. The national and
international designations are a key attraction for
visitors to Dorset.
2.3.5 Looking after these cherished landscapes is
challenging and the importance of doing so is
recognised in the Dorset Community Strategy:
‘Our cultural and historic heritage is also
important if we are to value and utilise our
environmental resources in the widest sense.
Restoration, renewal and appropriate
management of the historic vernacular, built
and natural environments must continue to
be encouraged across all areas of
Dorset….Ongoing measures must be taken to
safeguard Dorset's heritage including:
research, understanding and protection of
ancient monuments; maritime archaeology
and listed buildings; supporting museums,
managing and improving access to maps
archives and records; protection of built
heritage through conservation areas;
appropriate development of towns and
villages through enhancement schemes; and
design guidance that set quality standards,
respects local distinctiveness and
encourages local provenance….Recognising
the value of our landscapes is a beginning.
However, conserving our environment both
locally and globally is a serious concern that
requires everyone to act responsibly.’
[Dorset Strategic Partnership 2004:51]
Chapter 2. Overview of issues and problems
13

Chapter 2. Overview of issues and problems
14 14
Section I: Overview of issues and problems

Section I: Overview of issues and problems
2.4 The importance of Dorset’s
rural roads
Chaldon Herring: Roads form part of Dorset’s
protected landscapes
2.4.1 The large network of rural roads reflects the
diversity of the landscape within which they sit.
They contribute to the special quality of Dorset’s
rural environment [DAONB 2004] and are
described as being ‘just as much a part of the
countryside as the fields and hedgerows’’
[CPRE 1999]. Their manifold importance is noted
in the Dorset AONB Management Plan, as follows:
‘Dorset’s roads and routeways have evolved
from long centuries of human use with great
variations of style and character.
Recognition of the importance of rural
routes, the contribution they make to
people’s quality of life and their role in the
increasingly diverse rural economy is a key
factor in the Dorset AONB. Roads are
comfortably set within the landscape,
complementing natural and cultural
heritage. Many provide special habitats for
plants and wildlife’ [DAONB 2004:42]
2.4.2 The routes for movement in the countryside allow
rural dwellers access to services and facilities and
they are used for the complete range of journey
purposes [DETR & MAFF 2000]. This can be
broken down into:
• Rural to urban movements: functional trips
including commuting
• Urban to rural movements: reverse commuting
and leisure visits to the countryside
• Urban to urban movements: pressure on
unimproved major roads and minor routes used
for ‘rat running’
• Rural to rural movements: functional daily travel
between the local facilities [CA 2003b]
They are used by a wide mix of transport modes
which includes cyclists, walkers and horse riders
as well as cars, motorbikes, buses and goods
vehicles. The rural street or lane is a place for
social interaction and a location for markets and
fairs and is therefore an integral part of the rural
community structure [Sustrans 2004a].
South Street, Bridport: Rural streets are a location
for markets and fairs
2.4.3 This wide-ranging set of uses creates conflicts
between users and a complex set of problems.
Some attempts to deal with rural road
problems, such as engineering improvements,
can lead to secondary problems, such as fear and
danger for non-motorised road users. The
relatively poor rural public transport network
implies that much long-distance travel will be
achieved through personal, motorised mobility
(private cars as well as, for instance, scooter
schemes giving mobility to young people[CA
2003a]). This affects rural road decision-making
on issues such as acceptable vehicle speeds,
pollution and ways in which roads can be shared
between motorised and non-motorised users
[DAONB 2004, CPRE 2004]. The assumption that
personal mobility will remain dominant also
has implications for funding. The complex web of
problems which can afflict rural roads is illustrated
in Figure 2.2 on page 14.
Chapter 2. Overview of issues and problems
15

Chapter 2. Overview of issues and problems
16 16
Section I: Overview of issues and problems
Figure 2.2: The web of rural road problems
2.4.4 In relation to other shire counties, Dorset is of an
average size and has a small population;
however, it is forecast to experience the second
fastest population growth in England & Wales
[Dorset CC 2003]. Reconciling the transport
needs of the population with the desire to protect
Dorset’s important natural and built environment
is therefore one of the major issues for the
DAONB.
2.4.5 Whilst an absence of motorways and
lack of dual carriageways has reduced the large
scale impacts of roads in the landscape, there is
increasing pressure on the rural road network as
a whole. Proposals exist for new roads within the
DAONB, such as the A354 Dorchester Road
Relief Road in Weymouth, and if built, this will
impact on the South Dorset Ridgeway
[DAONB 2004]. Despite generally low night-time
light emissions across the DAONB, some of the
high emissions are attributable to street lighting.
The prominent lighting of the Handley Cross
roundabout is an otherwise unlit area has
led to it being known locally as the ‘UFO landing
pad’ [Burden and Le Pard 1996].
The A35 between Dorchester and Bere Regis is one
of the few dual carriageways in the county, but
where it ends, the trunk road reverts to unimproved
single carriageway

Section I: Overview of issues and problems
2.4.6 Across the county, the negative impacts of roads
and traffic on rural communities and the
environment alike are keenly felt [Dorset AONB
2004]. Between 1977 and 1997 traffic volumes in
Dorset have doubled [Dorset CC 1999: 40], and in
similarity to the national pattern, the fastest traffic
growth has taken place in rural areas [DETR &
MAFF 2000, CPRE 2004]. Traffic continues to
increase by 2.5% per year [DAONB 2004]. As
congestion rises on the major road network,
greater volumes of traffic are anticipated to ‘trickle
down’ onto more minor routes [CA 2003a] and
Dorset’s coastal areas in particular are already
subject to great seasonal variations in traffic
volume. Accident rates, too, are falling more
slowly in rural areas than urban areas; those
accidents that do occur are more likely to involve
fatalities, regardless of the road user involved
[DETR & MAFF 2000:65].
A351, Sandford: traffic flows continue to rise
on rural roads
2.5 The importance of design
Post-war residential estates have been criticised for
having insufficient regard for highway design and
local context
2.5.1 Concern over the quality of the built and natural
environment has mounted over recent years, with
post-war residential estates – especially those
from the 1970s and 1980s – having been
particularly criticised as being anonymous,
lacking in identity and inappropriate for rural
settings [DTLR & CABE 2001]. Concern has also
been growing regarding the deleterious effects of
insensitive engineering improvements on rural
roads. In both cases insufficient regard to design
matters is held as the major cause.
2.5.2 National guidance for local road design is
currently fragmented. The Better Streets, Better
Places [ODPM & DfT 2003] study, published in
June 2003, investigated the connections between
the application of rigid highway designs and the
successful development of quality, high density
places. The authors found that no suitable
guidance existed for either dealing with existing
rural roads or the design of proposed new roads
for local traffic.
2.6 Insensitive design of rural
roads
2.6.1 In the absence of other more suitable documents,
design guidance intended for trunk roads (the
Design Manual for Roads and Bridges (DMRB))
or residential estate roads (Design Bulletin 32
(DB32)) has been inappropriately used. This was
found to have compromised the quality of local
roads, and in particular, their suitability for use by
pedestrians and cyclists. Better Streets, Better
Places also identified that insufficient emphasis
has historically been placed on designing and
managing streets which would be vibrant places
in which people want to stop and spend time.
There has instead been a concentration on
simply designing routes for accommodating traffic
movement and flow.
2.6.2 The status of the various strands of guidance is
often blurred. It has been noted that ‘what is
frequently unclear are the circumstances in which
[the installation of highway features] is required by
law, is recommended in the form of official
‘guidance’ or is simply highway engineers’ long
established practice – or of increasing pertinence,
where their installation might be deemed by a
court of law, enjoying the benefit of hindsight after
an accident, to be ‘reasonable’ [Adams 2005: 42].
The latter point has risen in importance, with
government recently consulting on the
introduction of a corporate manslaughter offence,
which could lead to senior management being
imprisoned for ‘conduct falling far below what can
reasonably be expected of the corporation in the
circumstances’ [ibid: 43]
2.6.3 Conflicting priorities between local highway and
local planning authorities - often part of the same
council – were found to lead to developments
being recommended for planning approval, but
being objected to by highway engineers following
conventional highway design principles. The
major reason behind this was that conventional
Chapter 2. Overview of issues and problems
17

Chapter 2. Overview of issues and problems
18 18
Section I: Overview of issues and problems
Dorset has an extensive network of rural roads and tracks divided into a series of categories
(illustrated above). However, there is no guidance on the design and management which
specifically relates to many of these roads (see below).

Section I: Overview of issues and problems
highway designs are well-established and
considered easier to defend in a court of law,
should a litigious claim be brought against the
authority. To smooth the progress of applications,
house builders have often responded by avoiding
innovation and bringing forward traditional layouts
which tend to have lower dwelling densities and
inherently higher traffic speeds [CABE & DfT 2003].
2.6.4 Best practice case studies and the Better Streets,
Better Places report have shown that:
• Schemes should in the first instance be about
creating successful places overall, not about
tackling single issues;
• Designers should consider all potential uses of
the space;
• Investment in quality and attention to detail can
maximise a scheme's benefits;
• Working together is also fundamental to success
- regardless of the professional background of the
contributors;
• Good design can usually be achieved within
existing regulations; and
• Designers sometimes need to go back to first
principles and look at the reasons behind
guidance - rather than simply do things the way
they have always been done [ODPM & DfT 2003]
2.7 Policy context
2.7.1 This document is a timely contribution to the
increasing prominence being given to the subject
of rural road management by policymakers.
Recent years have seen a series of policy
responses to the problem; at a national level, a
series of research papers and guidance
documents have investigated the subject of
highway design. Many of these showcased
the successful developments in Dorset. Policy
statements have stipulated the need to show
greater regard for design in planning. Relevant
documents are set out in Table 2.2 below.
Table 2.2: Improving street design: major relevant policy, guidance and research documents
Date Document Title Relevant aims or content of document
Old-style Planning Policy Guidance Notes (PPGs) and new-style Planning Policy Statements (PPSs)
2000 PPG3 Housing Design residential development which places needs of people before ease
DETR of traffic movement and which creates attractive, high quality living environments
2001 PPG13 Transport ‘The physical form and qualities of a place, shaped – and are shaped by – the
DETR way it is used and the way people and vehicles move through it…places that
work well are designed to be used safely and securely by all in the community,
frequently for a wide range of purposes and throughout the day and evening’
2004 PPS7 Sustainable Development which respects and where possible enhances local distinctiveness
development in and intrinsic qualities of the countryside
rural areas ODPM
2005 PPS1 Delivering Planning policies should promote high quality inclusive design in the layout of new
Sustainable developments
Development ODPM
Guidance & Research
1998 Places, Streets and Movement An companion guide to DB32 which gave examples of
DETR innovative design approaches which met prescribed standards
2000 By design–urban design in the planning Improving urban design quality
process–towards better practice, DTLR & CABE
2001 Better places to live – a companion guide Improving the quality of residential developments
to PPG3, DTLR & CABE
2002 Paving the way Critique of how to achieve clean, safe and attractive streets
CABE & ODPM
2003 Better Streets, Better Places Research project into relationship between application of
ODPM & DfT highway standards and creation of well-designed places
Chapter 2. Overview of issues and problems
19

Chapter 2. Overview of issues and problems
20 20
Section I: Overview of issues and problems
2.7.2 Of particular relevance to this study is Better
Streets, Better Places. Its key recommendation
was the production of a government-endorsed
guidance document to deal comprehensively with
the design, management and adoption of
residential streets, to be known as the Manual for
Streets (MfS) [McNulty 2004].
Better Streets, Better Places recommended the
preparation of a Manual for Streets to raise the
standard of new and existing road design
2.7.3 The MfS is expected to be a significant departure
from many current design principles enshrined in
existing guidance; it will thus supersede DB32,
Places Streets and Movement and obviate the
need for the current plethora of local guidance.
The local documents are often out-of-date and
relevant sections of the existing guidance will be
incorporated into the MfS. It is intended that the
DMRB need no longer be referred to when
designing minor roads or those in residential
areas. Whilst the MfS will provide a satisfactory
approach to the nationwide issues of highway
construction and geometry (components 1 and 2 of
highway design), local distinctiveness varies from
area to area and this will still require local input.
2.7.4 According to a recent research document, ‘streets
are essential components in the urban fabric, they
are places in themselves, they are the most
immediate part of the public realm and we
encounter them everyday’ [CABE & ODPM 2002].
Efforts to improve them should not solely
concentrate on reducing the effect of motor
vehicles. The intention is for the MfS to raise the
quality of life through better minor road design
and through a fundamental change in the way
people share and enjoy the street. Its production
should lead to design standards which create more
people-orientated streets, community spaces and
in which the needs of pedestrians and cyclists will
be accorded a higher priority than present.
Emphasis will be given to placemaking – creating
successful places – and other issues, such as
reducing crime and anti-social behaviour are
taken into account.
The Manual for Streets is intended to promote design
which creates people-oriented places
2.7.5 Although first envisaged as a tool for improving
the design of new residential estate roads, many
of the design principles which the MfS will contain
will equally apply to other categories of road. Its
application may include:
• Re-design of existing roads;
• Design of new roads;
• Residential estate roads;
• Other residential roads;
• Local distributor roads;
• Roads in villages; and
• Minor rural roads.
2.7.6 Design codes are being considered by the Office
of the Deputy Prime Minister (ODPM) as a way to
both speed up the planning process and to ensure
suitable forms of development are built.
Adherence to good urban design principles
assists in creating places where people want to
live and work [CABE 2004] and design codes are
seen as a technique to improve the quality of
urban design [CABE 2004a, CABE 2004, Weaver
2004], community engagement and speed of
developments [CABE 2004]. They are described
as a set of strict style rules [Weaver 2003].
2.7.7 Design codes have previously been used in
the United States and on some housing
developments [CABE 2003, 2004]. Most famously
they have been used at Seaside, Florida (as
featured in the film The Truman Show) and at
Poundbury, Dorchester. Both developments
adhere to strict design rules.

Section I: Overview of issues and problems
2.7.8 Of particular interest for this study is that design
code requirements can – amongst other things –
stipulate street widths, distances between
buildings [CABE 2003] and the design of streets
and blocks, as well as sustainable urban
drainage, urban design principles, building
technologies, use of materials and energy
efficiency [ODPM 2003]. The stipulation of local
vernacular building styles in order to retain and
strengthen local identities is an important
component of design codes [ODPM 2003] and
this has been highlighted by the government.
Adopting successful schemes from other parts of
the country will not foster local distinctiveness,
concern being expressed that highlighting
Poundbury as an example of design codes in
action will lead to slavish copying elsewhere.
This concern is reflected in comments that state it
is ‘no good taking a code for Poundbury and
dumping it in Hull’ [Weaver 2004].
‘Poundbury is, perhaps, best described as a
model urban extension for a Dorset county
town. There are, of course, few of these in
England. In fact there is just one’
[Glancey 2004]
Design codes can stipulate road widths and
charcateristics [CABE 2005:34]
2.7.9 The intention is for codes to be drawn up with
stakeholders [ODPM 2004]. CABE stresses that
design codes should cover the fundamentals and
principles and not set rules like the ‘Poundbury
pattern book’ [Weaver 2003]. To this end,
information should not be ‘so prescriptive as to
smother creativity’ [CABE 2003].
2.7.10 The ODPM launched its pilot programme in May
2004 of 8 pilot schemes [CABE 2004, 2004a]. The
different pilots will test whether design codes:
• Relate well to the planning system
• Help in areas of multiple land ownership and with
several developers
• Improve the housing quality produced by national
housebuilders
• Work well at a large scale
• Can produce new development which reflects
local distinctiveness
• Can improve upon existing masterplans
2.7.11 Initial findings indicate that developments planned
using design codes are of higher quality -
although they are also characterised by both a
strong initial commitment to design from the
outset and strong leadership. The initial time
spent on the codes brings dividends later
on the planning process, with compliant planning
applications having a smooth ride through the
permission process. This also applies to the time
and effort spent involving people from different
professional backgrounds.
2.7.12 Formalising the design codes either as Local
Development Orders (where local planning
authorities selectively relax permitted
development rights with development quality
assured through the use of codes),
Supplementary Planning Documents or Area
Action Plans through the new planning process
are each considered to have merit [ODPM 2003,
CABE 2005].
2.7.13 The development of design codes is in its infancy
and their application other than for the design of
major housing developments has not been
trialled. They do however indicate the
government’s approval of the use of strict
guidelines for design in the statutory land use
planning process. This could pave the way for
similar documents covering the design of rural
roads through the Supplementary Planning
Documents process. The need both for local
distinctiveness (both a key part of the DAONB’s
attractiveness and often mentioned in rural road
management documents) and community
Chapter 2. Overview of issues and problems
21

Section 1. Overview of issues and problems
22 22
Section I: Overview of issues and problems
involvement is stressed in design coding
documents. These concepts in particular can be
applied to any rural road management documents
produced for the DAONB.
The CoastLinx 53 is becoming a popular method for
visitors to explore the environmentally sensitive
Jurassic Coast
2.7.14 The subject of managing travel generally in rural
areas is growing in importance in Dorset and
is being recognised by Dorset’s local authorities
and agencies. The recent designation of Dorset’s
Jurassic Coast as a World Heritage
Site by UNESCO means that visitor management
and sensitive approaches to transport within the
coastal hinterland is of heightened importance. In
parallel a recent government announcement
indicated that ‘urban design and liveability will be
at the heart of the next round of Local Transport
Plans’ [McNulty 2004] and this too will have
implications for rural roads.
2.7.15 Additional focus in new Local Transport Plans on
rural areas more generally – with policies to
protect and enhance the countryside character of
rural lanes – is viewed by some as a necessary
alteration [CPRE 2004]. This would be a
departure from the low prominence traditionally
accorded to rural transport issues in the first
round of LTPs [Headicar & Jones 2002].
2.7.16 It is intended that Dorset County Council’s 2nd
LTP will included strategies and policies which
afford protection to and promote enhancement for
the rural road network, in line with government
aspirations. LTP strategy in this field is likely to
concentrate on ensuring that:
• Transport improvements complement Dorset’s
high environmental quality and improve the public
realm in a locally distinctive way
• The impact of transport on the natural, built and
cultural environment is reduced
• Sustainable access options are provided to
Dorset’s visitor attractions, especially the World
Heritage Site
2.7.16 The wide variety of policy responses by a series
of different agencies illustrates that rural road
management is more than just an issue of
highway design. The problems are not solely the
remit of any one authority and many documents
highlight the complementary roles that the local
highway authority and local planning authority in
particular have to play. There is interaction not
only between well-designed streets and well
designed places but sympathetic rural road
management and conservation, preservation and
enjoyment of Dorset’s environment.

Section II: Evaluation of rural road
management methods
A wide range of methods have been trialled to
address rural road issues and these are examined
in this section. The following responses to problems
are discussed in eight chapters, as follows:
• De-cluttering and quality design;
• Protecting the natural and built environment;
• Managing traffic: traffic calming and
traditional measures;
• Managing traffic: innovative measures;
• Route functions: which routes for which users?
• Route functions: non-motorised users;
• Policy, guidance and hierarchies; and
• Maintaining the roads.
Each chapter examines the problems encountered and
examples of potential solutions and best practice as
trialled across the UK and overseas.
23

“The car and commerce are both vital to the well-being of the country,
but it is the junk they trail with them that we have to tackle”
Chapter 3. De-cluttering and quality design 24
Prince of Wales 1989: 94
Chapter 3: De-cluttering and quality design
3.1 Introduction to chapter
…It's all too easy to over design for safety.
It's good practice for example, to review
signing periodically. One, to ensure signs are
still appropriate for their intended purpose.
And two, to take into account changes in
regulatory requirements. But good design
can entail minimising sign clutter or
rearranging street furniture without
necessarily compromising road safety. And
as has been evidenced, even small
changes and small schemes can have a
positive impact on the local environment and
on passers by…. I'm confident specialists
from different fields can work together to
achieve broader benefits than those possible
through working in isolation.”
[McNulty 2004]
3.1.1 Whilst large, modern roads create the most
intrusive engineered impact on the landscapes
generally, the cumulative impact of small changes
on more minor roads can also be significant
[Chilterns AONB 1997]; especially in protected
landscapes where major developments are rare
Red Post, Winterborne Zelston:
a forest of signs degrades the
rural environment
[North Pennines AONB 2004]. Bright colours,
geometric shapes and straight lines look out of
place [Chilterns AONB 1997]; alterations to road
signage, kerbing, lighting and traffic calming can
all contribute to the changing character of roads
[DAONB 2004] and to subsequent creeping
urbanisation [CPRE 2004]. It is noted that ‘each
intrusion on its own may seem innocuous but
overall we lose a sense of rural character’
[CPRE 2004].
The problem of clutter has been recognised for
many years, such as in this cartoon by Osbert
Lancaster [from Prince of Wales 1989]

Section II: Evaluation of rural road management methods
3.1.2 Blame is attributed to slavish adherence to
standards, the requirement for cost efficiency (to
the detriment of quality) and litigation concerns
leading to every danger being highlighted.
However, over-signing in itself may dilute
important road safety messages [Sustrans 2004a]
and there is little statistical evidence to prove that
clutter improves safety [Adams 2005]. The House
of Lords (in the 2004 case Gorringe v Calderdale
Metropolitan Borough Council) recently
concluded that a LHA did not owe a duty of care
to a road user to place markings on the road or
erect hazard signs [Wiltshire CC 2004] as this
was not covered by section 41(1) of the 1980
Highways Act. It has been asserted that highway
standards neither take account of the countryside
nor give sufficient priority to its statutory protection
[CPRE 2004]. In addition, street furniture meant
for urban areas does not often translate well into
a rural setting [DAONB 2004]. There is a recent move to highlight every danger
with signs
3.1.3 De-cluttering, rationalisation or ‘sign culling’
[Tunbridge Wells 2004: 10] refers to initiatives to
reduce and get rid of intrusive features from rural
areas, thereby retaining the countryside’s special
qualities. Two national campaigns were launched
in 2004; Save our Streets by English Heritage
(EH) and the Clutter Challenge by the CPRE.
Whilst the former has an urban focus and the
latter a rural focus, both seek to reduce the
negative impact of unnecessary street clutter. It
appeals to both the public (concerned about their
local environment) and local authorities (who find
that maintaining less street furniture is cheaper
[Thomas 2004a]).
3.1.4 Wholesale de-cluttering is not currently advocated
by all groups. The Institute of Highways and
Transportation (IHT) warns that whilst, on one
hand, removing signs may benefit visual amenity,
it may, on the other hand, ‘cost lives’ [IHT 2004a].
The Institute states that a ‘logical response’ to
ensure a balance between road safety and the
protection of the environments is to have ‘parity of
provision’ of signs [IHT 2004a].
3.1.5 In similarity to many authorities, the London
Borough of Richmond-upon Thames ‘found
numerous locations where duplicate signs could
be removed, where signs on posts could be
placed on lighting columns (with the removal of
the posts), or where separate signs could be
combined’ [IHT 2004: 10]. Clutter can therefore
be dealt with in three ways:
(i) By its removal;
(ii) Through amalgamation and multi-functionality;
and
(iii)Through improved design.
These points are dealt with in turn.
Chapter 3. De-cluttering and quality design 25

Chapter 3. De-cluttering and quality design
26 26
Section II: Evaluation of rural road management methods
3.2 Clutter removal
3.2.1 Removal of clutter is the most obvious and
common approach to the problem and is most
often applied to signs. It can however extend to
include a range of types of clutter and can, for
example, involve the rationalisation of overhead
service cabling by statutory undertakers [Kent
Downs AONB 2005].
Even new schemes can suffer from street furniture
clutter
High Street, Wool: Excessive wirescapes can
detract from the environment
3.2.2 Moves are gradually being made at a national
level to reduce necessary signage, with, for
instance, revisions to the Traffic Signs and
General Regulation Directions in 2002 making
‘no waiting at any time’ signs redundant. Although
DfT policy states that is ‘very much a matter for
local engineering judgment what signs are
provided where’ [NAAONB 2003:16] national
guidance on signs does not often dwell on the
subject of clutter and little is written to clarify in
what instances what signs are strictly necessary
[Adams 2005].
3.2.3 Local policy often advocates clutter removal
[Suffolk CC 2000, Tunbridge Wells BC 2004] and
there are many more examples of sign
decluttering in action. Audits have, for instance,
been undertaken on Dartmoor [Countryside
Commission 1997] and in the Chilterns leading to
the removal of unnecessary signs [CPRE 2004].
Dartmoor and the New Forest have successfully
departed from standards to enable the installation
of speed limit repeater roundels painted on the
road without upright signposts. Oxfordshire CC
have accepted approximately half of the 170
proposals suggested by the CPRE for sign
reduction in the County [CPRE 2004]. A ‘No Traffic
Signs’ trial is to be undertaken as a road safety
scheme in Bibury, Gloucestershire, where,
subject to consultation, 40 signs have been
earmarked for removal [Shepherd 2005].
3.3 Amalgamation and
multi-functionality
‘…a post can act as a bollard as well as
supporting a traffic sign’
[Suffolk CC 2000:14]
3.3.1 Amalgamation and clustering of street furniture,
particularly signs, is often advocated [Kent Downs
AONB 2005, Suffolk CC 2000, Tunbridge Wells
BC 2004]. For instance, policy documents often
state that street lighting can be affixed with
brackets on buildings or telegraph poles [Suffolk
CC 2003, Norfolk CC 1997]. Other suggestions
include ensuring signs are placed on existing
street furniture or, where this is not possible,
consideration given to making minor modifications
to Traffic Regulation Orders (TROs) to enable it
[Thomas 2004a, RBKC 2004].
3.4 Improved design
‘The road layouts…and their accompanying
signs, signals, barriers and road markings
are not the work of any single planner; they
are the cumulative result of numbers of
unco-ordinated interventions’
[Adams 2005:39]

Section II: Evaluation of rural road management methods
3.4.1 Some of the earliest guidance on the subject of
rural roads concentrated on how to best fit new
highway schemes into the landscape
[Countryside Commission 1995] and information
on these subjects (such as the treatment of new
bridges) still forms part of guidance documents
[Suffolk CC 2003].
3.4.2 Policy emphasis has however shifted towards
ensuring that the characteristic uncluttered nature
of unimproved rural roads remain commonplace
[Suffolk CC 2000]. A common approach to this is
the identification of alternatives to bad practice
and highlighting good practice of rural road and
streetscape treatment. As a guide, Suffolk CC’s
manual states that design solutions should be:
• Simple;
• Designed for the location;
• Accessible to all users;
• Safe;
• Suitable for those with special needs;
• Look good;
• Functional and be easily understood;
• Consider traffic management as part of an overall
solution; and
• Consider drainage and maintenance.
[Suffolk CC 2000]
Local authority guidance documents highlight
improved design solutions
3.5 Improved street and road
boundary material design
3.5.1 Following on from early successful town centre
schemes, a palette of non-standard paving is now
widely available for highways and is thought
especially suitable for town and village centres
[Norfolk CC 1997]. Example materials include
cobbles, paving stones, bricks, setts and surface
dressings [Suffolk CC 2000].
Dennington, Suffolk: Village streetscapes need not
use standard paving materials.
3.5.2 Guidance suggests that coloured markings on
roads should be used sparingly [Kent Downs
2005], since most are visually damaging [FLD
2005]. Red surfacing is suggested for use solely
to indicate banned traffic movements (eg one-way
streets or hatched areas) [Suffolk CC 2003]. In
addition, the effect of all markings is largely
negated in wet weather and some types, such as
dragon’s teeth, have only limited speed reducing
effects [DfT 2004c].
Many road markings are visually damaging
3.5.3 Colouration to signify cycle routes may also be
intrusive; a layer of crushed shingle or a simple
white line may be better [Suffolk CC 2003]; in all
cases a change in surface may affect cyclists’
comfort. Alternatively, sympathetic use of different
surfaces can signal changes in road environment,
such as with setts [Kent Downs AONB 2005].
Chapter 3. De-cluttering and quality design
27

Chapter 3. De-cluttering and quality design
28 28
Section II: Evaluation of rural road management methods
3.5.4 The design of necessary markings can often be
improved upon, with scope for yellow lines to
be modified to, ‘be of the palest colour acceptable
from a highway safety point of view’ [Suffolk CC
2003:44]. Thinner, ‘conservation grade [yellow]
lines’ are promoted in Suffolk [ibid] and are used
elsewhere [IHT 2004, RBKC 2004].
Withdrawing waiting restrictions enables clutter
reduction, as the painted lines which accompany
the restriction can be removed, such as on
historic Richmond Bridge [IHT 2004].
Emsworth, Hampshire: Parking bays can be
delineated without painted road markings by the
careful use of different materials
3.5.5 Kerbs should be avoided in rural areas for
aesthetic reasons [Kent Downs 2005, Suffolk CC
2000 & 2003 & Norfolk CC 1997] and this is
thought especially imperative around commons or
greens. Where a solution to erosion and verge
over-running is necessary, non-standard
approaches (including kerbs of granite, exposed
aggregates or riven concrete [Suffolk CC 2003],
log kerbing, timber sleepers, earth embankments
or verge reinforcement [Suffolk CC 2000,
Tunbridge Wells 2004] may offer a better solution
(see also Chapter 6). Leaving village greens with
long grass can help prevent over-running and
unauthorised parking [Suffolk CC 2003]. Where
kerbs are necessary, low profile, splayed units
[Tunbridge Wells 2004] or kerbs laid on a batter
(angle) could be considered in order to minimise
their impact [Suffolk CC 2003]. If kerbs are
provided this can obviate the need for edge white
lines [North Pennines AONB 2004].
Martinstown: Kerbs and tarmac surfaces should be
avoided on village greens for aesthetic reasons.
3.6 Improved signage design
3.6.1 In 1963 the Worboys Report recommended
bringing UK signs in line with international and EU
standards [Marshall 2005]. This led to the current
road sign design on major roads, the introduction
of the Transport font and the use of symbols, not
wording, for warning signs. In the early 1990s, a
good practice project in Guildford led to regulatory
signs (eg. width restrictions) being incorporated
into direction signs (an early clutter reduction
measure) and the use of junction names on
direction signs [Apex Corner 2005].
3.6.2 Despite their perceived over-proliferation, the
provision of some signs remains necessary and
the spotlight has turned onto their design and
location. Their intrusiveness is, for instance,
exacerbated where information is combined onto
overly large signs. Whilst it is acknowledged that
place name signs can be used to provide
‘information about local services…display
information about twin towns or awards won by
the community [and] incorporate information
about what is of interest in a settlement’ [Suffolk
CC 2003:38], it is not always acknowledged that
this information, unchecked, can constitute clutter.
3.6.3 DfT policy states that ‘the size of signs depends
on the amount of information to be included and
the speed at which traffic is approaching’
[NAAONB 2003:16]. Local guidance often
suggests that signs should be as small as is
practicable, legal, safe and enforceable and
balance information provision with its

Section II: Evaluation of rural road management methods
environmental impact [Suffolk CC 2003]. Seeking
departures from standards to achieve this is
thought to be advantageous [Tunbridge Wells BC
2004]. Information should be compiled onto
composite signs unless these would be overly
large [Kent Downs AONB 2005, Norfolk CC 1997,
Suffolk CC 2003], in which case two well-sited
boards may lessen the bulk [Suffolk CC 2000].
3.6.4 Sustrans state that cycle signage (legally agreed
with and designed by the LHA) ‘needs to be
appropriate for the location, for instance in an
[AONB] it may be preferable to use timber posts
that blend with the countryside’ [Sustrans 2004],
although common practice is to use metal posts;
this can result in a look of incongruity.
National Cycle Network (NCN) route signage can be
incongruous (left photo) but need not be (right photo)
3.6.5 Sign backing plates, especially those which are
highly coloured [Kent Downs AONB 2005], should
be avoided, on the basis that they are intrusive
and their message is devalued by their
proliferation. Guidance suggests that posts
supporting signs should not project above the
sign itself and that the intrusiveness of sign backs
can be reduced by colouring them black in towns
and grey in rural areas [Suffolk CC 2003]. Shorter
signs have less visual impact [Suffolk CC 2003,
Tunbridge Wells BC 2004, Norfolk CC 1997].
Cases have been made for either signing non-car
modes with other directional information [Suffolk
CC 2003] or separately [Suffolk CC 2000].
Coloured sign backing plates can be intrusive
3.6.6 The location of signs should take into account
aesthetics. Affixation to existing street furniture is,
for instance, always preferable to separate posts,
and signs can be placed back-to-back.
Minimisation of landscape impact should be
considered when siting any signs; they should not,
for instance, be placed against the skyline
[Suffolk CC 2003]. With regard to street name
signs, the pedestrian expects them to be located
at the back of the footway, on walls or on fences
[Surveyor Magazine 2005]. London boroughs
have strict guidelines which state that street name
signs should be located as close as possible to
junctions, ideally 1 metre above the ground or
above the ground floor window of buildings [ibid].
Wool: Timber is widely used for sympathetic street
nameplates in Purbeck
Chapter 3. De-cluttering and quality design
29

Chapter 3. De-cluttering and quality design
30 30
Section II: Evaluation of rural road management methods
3.6.7 Appropriate materials can (sometimes with higher
cost) help integrate signs into the landscape.
Timber is widely used for village name, speed limit
and reflective posts, primarily for reasons of
sustainability and appearance [Tunbridge Wells
BC 2004]. Although more expensive, untreated
oak or chestnut has a similar life expectancy to
standard metal signs [ibid]. The use of cast metal
poles, stone bollards [Suffolk CC 2000] or
stainless steel hoops [RBKC 2004] offer
alternatives to standard street furniture materials.
The sensitivity shown to material design does not
always extend to the sign itself, which may still be
large or have standard ‘Transport Heavy’ font.
Derbyshire County Council’s guidance includes
pointers on how to sensitively site signs
3.6.8 The over-use of particular signs has been
highlighted and policies exist to regulate their use.
For example, Norfolk CC stipulate that warning
signs should only be used where there is ‘a
proven need based on site observations and/or
accident records’, not perceived problems
[Norfolk CC 1997:19]. Countdown markers have
been shown to have little speed reducing effects
[DfT 2004c]. Speed limit signs in their current form
have been identified as being inappropriate for
rural environments and requiring a more effective
and sympathetic design [DETR & MAFF 2000:66].
3.6.9 As explained above, the 1963 Worboys Report
stipulated the design of modern signposts. No
styles were subsequently set for modern
fingerposts in the Traffic Signs Regulations &
General Directions (TSRGD) of 1964, 1975 or
1981. This changed with the publication of the
1994 and 2002 versions of the TSGD, in which a
‘direction to destination shown along minor rural
roads’ sign was included and information
contained within Chapter 7 of the Traffic Signs
Manual [DfT 2003b] included in Table 3.1 below:
Table 3.1: Information on design of modern
fingerposts [DfT 2003b]
Paragraph Remarks
number
1.5 Information applies to new and
replacement signs
3.3 Directions do not permit the use of
modern fingerposts on trunk, principal
or classified (B) roads
3.34 Distances over 3 miles must be
rounded to the nearest mile
7.13 Modern version of traditional fingerpost
should be used only on unnumbered
rural roads where traffic speeds are low
7.14 Transport Heavy font is to be used. Lower
case lettering with an initial capital, or
upper case lettering throughout, may be
used so long as ‘the letters are always
black on a white background’
Signs using letter styles to replicate
pre-1960s (ie pre-Worboys) may be
specially authorised on request
7.15 The fingers should be pointed or
square ended
The legend may be flush with the plate
of raised
7.16 Finials may be added
7.17 ‘Ideally all fingerpost signs on minor roads
in a particular area should be to the
same design’

Section II: Evaluation of rural road management methods
The regulation-compliant fingerpost design in the
TSRGD
Wool, Dorset: The regulation-compliant design in
practice. These have replaced historic signs
3.6.10 Adherence to the regulations has often inhibits
the replacement of standard signs with suitably
locally distinctive fingerposts of traditional
appearance [Lincolnshire Wolds AONB 2004].
Although a clause in the TSRGD states that
‘nothing in these regulations shall be taken to limit
the powers of the Secretary of State…under
section 64(1) and (2) of the 1984 Act to authorise
the erection or retention of traffic signs of a
character not prescribed by these Regulations’
[DfT 2002:15] departures from standards seems
uncommon.
3.6.11 The installation of fingerposts (of a modern
design) over other standard designs of direction
signing is policy in some locations [Norfolk CC
1997, Kent Downs AONB 2005]; this ranges from
‘wherever highway safety allows’ [Suffolk CC
2003], to the ‘tasteful and traditional’ signs
specified in the New Forest Transport Strategy
[Countryways Signposts 2005] amongst others.
Devon has a comprehensive set of modern white
fingerposts (using wood in the National Parks and
plastic elsewhere [Devon CC 1992], incorporating
the county logo, the junction name and with the
road category in the Functional Route Network
(see chapter 10) specified by the finger edge colour.
3.6.12 Most commonly, restoration of existing traditional
posts is advocated in the first instance and where
this is not possible, the traditional design should
be used as a template for new signs [Tunbridge
Wells 2004]. Some programmes are prompted by
a desire to reduce sign clutter [FLD undated], with
standard main road signs being removed and
information compiled onto new-style fingerposts.
Incorporation of brown tourist destination
information and the acceptability or otherwise of
strategic destinations being signed on minor road
fingerposts are issues which can, with thought, be
addressed by these projects (see chapter 10).
Before and after in Martindale, Cumbria: expenditure
on a newly designed fingerpost allowed the removal
of other street furniture
3.6.13 Street name signs are said to greatly contribute to
the architectural and historic character of the
locality in which they are located [Surveyor
Magazine 2004], although the standard of current
examples is mixed [Colley, Stops & Bright-Keay
2003]. However, even the benefits of acclaimed
schemes, such as Bristol’s Legible City Initiative,
Chapter 3. De-cluttering and quality design
31

Chapter 3. De-cluttering and quality design
32 32
Section II: Evaluation of rural road management methods
can be diminished where new developments do
not adhere to the previously developed standards.
The Legible City signs provide clear waymarking and
divides the city centre into differently named
quarters to aid navigation
3.6.14 The Quantocks AONB have begun a programme
to provide high quality cast iron village name
signs – in the shape of the old county boundary
signs and with AONB logo and name – mounted
on wooden poles [NAAONB 2004].AONB
boundary or gateway signs are supposed to
create a favourable first impression for visitors
[Kent Downs AONB 2005] or raise local
awareness of the designation [NAONB 2004].
However, additional (and non-statutory) signage
often remains an intrusive departure from the
character of AONBs.
Villages in the Quantocks AONB now have highquality
and locally distinctive name signs at the
village entrances
3.7 Improved design of other
street features
3.7.1 Street furniture design can act as a co-ordinating
feature throughout a settlement and should be
a key part of the design process, not an
afterthought [Suffolk CC 2000]. Consideration can
be given to all street furniture, even down
to the lowly grit bin [Suffolk CC 2003]. Furniture of
a simple design is usually appropriate for villages;
off-the peg ‘heritage’ street furniture designs
[Suffolk 2000] may not always be suitable as
these can unintentionally reduce distinctiveness
and increase anonymity. They can also date
quickly. Some notes on miscellaneous street
furniture are considered below:
• Cycle racks can be made of timber;
• 'Armco' crash barrier installation should be
avoided on rural lanes, since speeds are
generally low and they tend to urbanise the
landscape [North Pennines AONB Partnership
2004]. If needed, wire rope barriers, as used
widely in the Lake District, are suggested as
less visually intrusive [FLD 2005]. White post
and rail fencing could be used as an alternative
indication of steep drops adjacent to the road
[Kent Downs AONB 2005];
• Informal verge markers placed by householders
(such as painted stones) are unlawful, can be a
safety hazard and unsightly [Tunbridge Wells
BC 2004];
• Rural advertisements can appear incongruous
[CA & ICE 2002];
• Bus shelters should ideally be sited where there
is good surveillance, and a location adjacent to
a building, wall or hedgerow will minimise
impact. Wood or brick shelters give a traditional
look in locations where modern designs
(especially advertising types) would be
unsuitable [Suffolk CC 2003, FLD 2005, North
Pennines AONB 2004];
• Bus lay-bys should be avoided, since they
introduce large areas of hardstanding and extra
road markings into the streetscape [Suffolk CC
2003];
• Utility company equipment should, where
possible, be minimised, screened or sited
underground [North Pennines AONB 2004]; and
• Bridges are important landmarks and
renovation should use traditional materials,
even if it disguises stronger modern materials
behind, such as concrete [ibid].

Section II: Evaluation of rural road management methods
Even bus stop flags can be of quality design, such as
here in Swyre with the Jurassic Coast ammonite logo
Winterbourne Steepleton: using stone and brick can
give a traditional look to bus shelters
Chapter 3. De-cluttering and quality design
33

Chapter 4. Protecting the Natural & Historic Environment
34 34
“rural lanes, with their rich legacy of hedgerows, verges and ditches,
are an important feature for wider nature conservation objectives”
4.1 Introduction
4.1.1 As indicated in the overview section, conserving
the environment is deemed to be of prime
importance within Dorset. The Countryside
Agency (CA) aspire to a situation in which
transport developments are ‘planned and
designed in a way that shows a net gain for the
social, environmental and economic interests of
the area, with no significant losses to any of them’
[CA 2003a:10]. Currently, the effects of roads on
ecology and wildlife as well as the negative
consequences on the environment of light and
noise pollution are neither fully understood or
taken account of. This chapter examines the
problems and potential ways in which the situation
can be improved.
4.2 Conserving ecology
4.2.1 As well as providing a pleasant visual backdrop to
rural roads, many verges, hedgerows and junction
triangles are ancient and are important ecological
resources, adding to the biodiversity of the
countryside [Suffolk CC 2000 & 2003]. They
(Tunbridge Wells BC 1998:8)
Chapter 4: Protecting the natural
and historic environment
Red Campions line the verge of Lee Lane, Bradpole
provide a wide variety of habitats due to the
diversity of the lanes themselves. Roads often
form part of, or are adjacent to, designated sites
for the conservation of ecology, such as Sites of
Special Scientific Interest (SSSIs) or National
Nature Reserves. In other locations, they act as
wildlife corridors in what can otherwise be hostile
intensively farmed landscapes or retain downland
flora where surrounding land has converted to
arable cultivation [Burden and Le Pard 1996].
4.2.2 Some hedges gained statutory protection with the
Hedgerow Regulations 1997, which require
consent for their removal [Suffolk CC 2000]. Where
mentioned, policy favours the retention of historic
and ecologically important hedges, woodland
banks and road verges [Kent Downs 2005].
Where new boundaries have been required,
Devon CC have pioneered the creation of new
hedgebanks [Belsey 1993]. Hedge trees should
be felled as a measure of last resort, with
pollarding and crown reduction undertaken in
preference [North Pennines AONB 2004].
4.2.3 Maintenance of hedges (which often rests with the
landowner [Chilterns AONB 1997]) can be

Section II: Evaluation of rural road management methods
problematic, with a major problem being overcutting
[ibid.]. Suggested maintenance includes:
• Cutting the top of the hedge on a two-year rotation
in January or February, to avoid nesting season
and enable berries to be retained during
winter months;
• Road side of the hedge to be cut, usually once a
year between November and March;
• Cutting should ideally lead to an ‘A’ shaped
hedge;
• Trimmings should be removed from the
carriageway where they can cause a hazard,
particularly to non-vehicular modes;
• Trimming should not destroy hedge tunnels;
• Replacement or new planting should be
undertaken as necessary.
4.2.4 The species composition of new planting
schemes is identified as being of critical
importance [Suffolk CC 2003] and the introduction
of non-native species of boundary hedging is, for
instance, one of the most important issues in
some protected landscapes [High Weald AONB
2004]. Chosen species should preserve
biodiversity and local distinctiveness and common
prescription of species should be avoided in order
that individuality is not undermined.
4.2.5 The ecological value of road verges themselves is
often poorly understood and many have no
statutory protection [High Weald AONB 2004].
However, the designation of wildlife verges is
common across the country [Suffolk CC 2000 &
2003, Tunbridge Wells BC 2005, Norfolk CC
1997]. These are sites, often identified in
association with the county wildlife trust, where
rare plants thrive and which would benefit from
particular management or where plants provide
habitats for particularly important species. The
Dorset scheme dates back to 1983.
4.2.6 Verges are managed habitats [Burden and Le
Pard 1996] but suitable mowing regimes of grass
verges are often poorly managed. Mowing
regimes should be modified to ensure that the
growth of verge species are nurtured and
prevented from damage. Following criticism there
has been a move away from frequent cutting,
thought preferable to ‘improve biodiversity and
reduce the maintenance budget’ [Tunbridge Wells
BC 2004: 4]; however, this may result in mulch
being deposited on the verge, reducing species
diversity.
Dorset has a series of wildlife verges identified for
their ecological importance
4.2.7 Mowing regimes should, though, strike a
balance which on one hand prevents ‘over
tidying’ [Chilterns 1997], such as on village greens
and on the other hand keeps scrub in check
[Burden Le Pard 1996]. Since most people initially
experience Dorset’s landscapes from roads,
preserving any historic openness on verges is
important to allow viewing and appreciation of the
countryside [Burden and Le Pard 1996]. Salt and
grit can damage plants; its storage and spreading
should consider the effects on ecology [Suffolk
CC 2003].
4.2.8 Other policy points include:
• Heavy plant and machinery should not be stored
on verges;
• Surplus soil should be appropriately disposed of;
• Soils for re-planting should generally be of low
fertility and compatible with the local geology
[English Nature 2005];
• Re-seeding should be undertaken with a suitable
species mix and protected where necessary by
posts [Suffolk CC 2003];
• Seed mixes can be stipulated for different soil
types [Norfolk CC 1997]; and
• The planting of bulbs outside of village boundaries
is to be discouraged [North Pennines AONB 2004].
Chapter 4. Protecting the Natural & Historic Environment
35

Chapter 4. Protecting the Natural & Historic Environment
36 36
Section II: Evaluation of rural road management methods
Bere Regis: Vehicles over-running the carriageway
can incrementally widen roads or damage verges.
4.3 Wildlife
4.3.1 Wildlife is also affected by rural roads and their
management. The verge maintenance regime
dictates the degree to which these offer a suitable
habitat or feeding ground for animals. Similarly,
surface runoff from roads can pollute
watercourses and have consequent effects on
aquatic life; drainage schemes, ditch clearing and
changes in pond water quality can affect
amphibians including rare Great Crested Newts
[Suffolk CC 2003]. Highway works in general may
disturb the habitats of protected species, such as
badgers and barn owls and the presence of
lighting may confuse the activity patterns of wildlife.
Animal deaths are common on rural roads
4.3.2 Highways present a barrier to wildlife movement
and consequently animal deaths are common.
Wildlife can also endanger human life and
damage vehicles, with deer collisions being
particularly serious. Management techniques can
include the installation of ledges under bridges
and culverts to ensure passage for otters and
water voles [ibid], and ensuring bridges retain the
integrity of the aquatic habitats over which they
cross. Amphibian fencing (to ensure they do not
stray onto roads) or temporary measures to assist
toad migration, including temporary signs and
volunteers assisting their road crossings are also
used [ibid.]. Tunnels for species like badgers can
be incorporated into new road schemes, but are
difficult to install in existing roads. The use of
reflective posts to deter animals crossing roads,
by creating a band of light when vehicles
approach, has been trialled in some areas.
Migrating toads are at risk from vehicular traffic
4.3.3 The need to conserve Dorset’s rare flora and
fauna has led to new management techniques
being suggested. Re-introducing grazing – to
maintain the plants vulnerable to scrub
encroachment and the species they support – is
often promoted. This in turn is prompting a
reassessment of how this can be accommodated
successfully where roads cross the open land,
such as Lydlinch Common in the north of the
county and Turner’s Puddle Heath in the south. In
these cases the necessities of conservation are
prompting discussion over innovations to rural
traffic management.
4.4 Light and noise pollution
‘Street lamps and lighting on the main traffic
routes are often excessive and cast an alien
sodium glow over large areas of the country’
[Prince of Wales 1989:95]

Section II: Evaluation of rural road management methods
Lighting dominates the landscape: the approach to
Monkey’s Jump Roundabout, Dorchester
4.4.1 England is the second most brightly-lit country
in Europe [FLD 2005]. There are three issues
relating to street lighting in the countryside,
namely:
• Whether it is necessary at all;
• The intrusiveness of the light emitted; and
• The visual impact of the lamp columns during
daylight hours.
4.4.2 National guidance suggests that lighting provision
should be assessed on a case-by-case basis in
accordance with the British Standard and
information provided in Traffic Advisory Leaflet
(TAL) 49/86 and the best practice document on
the subject [DETR 1997]. Several local
documents stress a presumption against lighting
anywhere in the countryside [Kent Downs AONB
2005, Suffolk CC 2003] and it is suggested that
illuminated signs should only be installed if there
is a statutory requirement [Suffolk CC 2003]. New
roads can create the opportunity to remove
over-specified lighting on the bypassed routes
[Countryside Commission 1995].
4.4.3 The number of columns and the area lit should be
kept to a minimum [Countryside Commission
1995, Suffolk CC 2003], with consideration given
to reduce impacts by only lighting villages
selectively to overcome specific problems [Suffolk
CC 2003]. High pressure sodium lights lessen the
usual orange glow and lamp columns painted in
dark matt colours reduce the intrusiveness of
lighting columns themselves [Countryside
Commission 1995]. Guidance suggests that light
columns should be simple in design and match
existing ones where appropriate [Suffolk CC 2003].
4.4.4 Dorset has adopted a street lighting policy to
inform the replacement lighting programme and
this divides the county into four environmental
zones with different standards for light intensity
[Dorset CC 2004]. Zone 1 covers the World
Heritage Site, AONBs, SSSIs and ‘dark areas’ –
parts of the county with very low population
densities and with no or intermittent lighting. In
these areas, the policy is for villages ‘only be
provided with lighting when it is requested and
funded by the Town or Parish Council with support
from the residents and interest groups. Such
lighting will be limited to strategic locations such
as telephone boxes, bus stops etc’. Outside of
villages, lighting is only to be installed where
‘there is a night-time safety issue that cannot be
solved by other means’ [Dorset CC 2004: 45].
4.4.5 Recent installations have eliminated upward light
spillage and glare and, where possible, are
designed to be locally distinctive. The successful
design of lights on Marine Parade in Lyme Regis
– incorporating the outline of ammonite fossils –
was recognised by the receipt of a Good Lighting
Award given by the British Astronomical Society.
The town’s mayor commented that, “The quality of
the seafront streetlighting through our partnership
with Dorset County Council is testament to the
uniqueness of our town."[Dorset CC 2004a]
Well-designed columns in Lyme Regis protect
the sky from light pollution
4.4.6 Traffic noise as a pollutant has been recognised in
selected documents. Emanating mainly from
tyres, it can reach up to 90 decibels and disrupt
birdsong for several hundred metres [CA & ICE
2002]. Recently constructed concrete roads, such
as the A35 Tolpuddle & Puddletown Bypass, are
identified as requiring resurfacing to reduce the
noise currently emitted [Highways Agency 2002].
Chapter 4. Protecting the Natural & Historic Environment
37

Chapter 4. Protecting the Natural & Historic Environment
38 38
© John Allen/Images of Dorset
Section II: Evaluation of rural road management methods
4.5 Conserving archaeological and
historic features
Nine Stones, Winterbourne Abbas: Trunk Road traffic
disturbs the tranquillity of the ancient stone circle.
The nearby Broad Stone is in more precarious
position, lying flat in the verge half a metre from the
carriageway edge.
4.5.1 Many lanes are recognised as having special
archaeological or historic features [Chilterns
AONB 1997]. Whilst much in the surrounding
landscape may have changed, the route of the
lanes can be an enduring feature which were
historically used as a parish or land ownership
boundary. The names of the lanes and their
junctions often give clues to past use or
ownership of the routeways. Their presence often
provided a key reason for settlement siting and
the naming of places (e.g. Bradford = Broad ford).
The route of lanes can be an enduring feature in the
landscape. Here at Witchampton a bridleway follows
the Roman road north from Badbury Rings
4.5.2 Known archaeological sites are recorded in the
county sites and monuments record (SMR),
however many others are undiscovered [Suffolk
CC 2003]. Identification of rural lanes with historic
or archaeological value has occasionally been
undertaken as part of wider studies into rural lane
management [Tunbridge Wells 1998].
4.6 Conserving the historic
environment: signs
4.6.1 Many rural areas across the country remain
characterised by the presence of fingerpost signs
and many of these date from the inter-war years.
In 1921 the Ministry of Transport produced a
model on which it recommended fingerposts were
to be based, including the recommended
incorporation of LHA name as a design
concession to local distinctiveness [Apex Corner
2005]. The 1933 Maybury Report stipulated that
lettering should be 2.5 inches in height, although
this was not adopted universally [Belsey 1993].
4.6.2 Following the Worboys report on signing
modernisation, the government pronounced in
1975 that signs on minor roads which were not
Worboys-compliant were able to be retained
[Belsey 1993]. A 1987 review set a 10-year
deadline for the removal of all non-compliant
signs; this still excepted fingerposts on
unclassified roads in the countryside, on the basis
that traffic on these moves at slower speeds and
that standard, compliant signs would be intrusive
and out-of-place [Apex Corner 2005]. However,
as a consequence, away from the most minor
routes, large volumes of historic fingerposts had
already been removed. Whilst government policy
now states that pre-1964 signposts ‘are saved
indefinitely’ [Lovell 2005]; the maintenance and
preservation of the remaining historic signs has
generally been poor.
Piddlehinton: where historic fingerposts remain in
situ, they are often in poor condition

Section II: Evaluation of rural road management methods
4.6.3 Many authorities in protected landscapes now
have systematic fingerpost restoration projects
underway. Some projects have used the
restoration programme as an opportunity to
enhance the fingerposts, with iron collars giving
historic junction names [Quantocks AONB 2004],
distinctive pony or buzzard logos (New Forest and
Quantocks respectively) or painted cast iron
crown finials in Cumbria [FLD undated]. A traffic
advisory leaflet is in preparation by the DfT on the
subject of fingerpost preservation.
Before and after signpost restoration in the
Quantocks AONB; note the installation of the iron
collar with logo and junction name
4.6.4 Finance comes from a wide variety of sources,
often in combination. This can be from charity
environmental grants [FLD undated], Heritage
Lottery monies (such as the Local Heritage
Initiative) [Quantock Hills AONB 2004] or from a
selection of local authority budgets [Lincolnshire
Wolds AONB]. County Councils do not
always have budgets for this approach to sign
repair [FLD undated]. In cases where the LHA did
not contribute monies the issue of awarding
grants to cover a LHA statutory duty was
encountered. This tended to be overcome by
emphasising the higher than legally necessary
standard of sign.
4.6.5 Local historians and local people have become
involved to ensure sign authenticity [Lincolnshire
Wolds AONB] and identify local place names
[Quantocks AONB 2004]. In some instances,
volunteers have helped paint new signs
[Quantocks AONB 2004] or look after existing
ones locally [Chiddingly Parish Council 2000].
Partnerships between local authorities and
specialist interest groups are common [FLD
undated, Lincolnshire Wolds AONB 2004]. Small
scale schemes have prompted the adoption of
countywide policies of restoration and production
of replicas [Quantock Hills 2004].
4.7 Conserving the historic
environment: other built features
4.7.1 Whilst the conservation of traditional signage is
frequently advocated, the need to retain in their
original location other historic features is also
highlighted. These other historic features can
include bollards, lights, drinking troughs, pumps,
milestones, memorials, red telephone boxes and
post boxes [Suffolk CC 2000]. Coverage of the
issue has a greater prominence in urban
environments, with publications including the
Streets for All series [EH 2000, 2005]. The
conservation of rural road features, such as fords
and brick bridges [Kent Downs AONB 2005] or
historic metal railings, walls and traditional paving
materials merits discussion in some policy
guidance documents [Suffolk CC 2003].
Guidance documents
highlight streetscape
features worth
conserving [EH 2005]
4.7.2 On the other hand, suburbanising features such
as non-native hedges, certain types of gate,
grand entrances, overly tall fences [CA & ICE
2002] or close boarded fences of any description
should, according to guidance, be resisted
[Suffolk CC 2003, Tunbridge Wells 2004]. These
are felt to detract from rural character.
Chapter 4. Protecting the Natural & Historic Environment
39

Chapter 5. Managing traffic: traffic calming and
traditional measures
40 40
Chapter 5: Managing traffic:
traffic calming and traditional measures
5.1 Traditional measures
5.1.1 ‘Traffic calming’, promoted by government as part
of a compendium of accident reduction solutions,
became common in rural areas during the 1990s.
Studies have shown that where implemented, it
can reduce all injury accidents by 25% and death
and injury accidents by 50% [DETR & MAFF
2000:66]. Prioritisation is generally accorded to
schemes on the basis of the speed reduction and
accident prevention benefits they can achieve.
5.1.2 Historically, traffic calming in rural areas has
concentrated on treating major roads through
villages [DoT 1994] and it remains uncommon on
more minor roads. In Dorset, rural traffic calming
tends to be limited to road markings, gateway
features and signage.
5.1.3 There are concerns that traffic calming in rural
areas tends to be urbanising [Thomas 2004] and
that schemes are ‘often urban traffic calming with
light modification’ [CA & ICE 2002:19]. Indeed,
significant reductions in speed (using conventional
means) are thought difficult to achieve ‘without
Frampton: Signs and lines denote the traditional engineering
measures employed at the entrance to villages
intrusive measures’ [CA & ICE 2002:19]. This
concept is difficult to reconcile with policy which
highlights the need for schemes to be sensitive
and appropriate for their surroundings [Kent
Downs AONB 2005, Sustrans 2004a]: these
aspirations do not always translate into sensitive
schemes on the ground.
Traffic calming in rural Dorset is often restricted to
gateway signage

Section II: Evaluation of rural road management methods
5.1.4 Commonly used traffic calming features include:
• Road humps
• Speed cushions
• Hatchings
• Chicanes
• Crossing facilities
• Gateway features
5.1.5 Whilst road humps often cut speeds and
accidents, they are expensive, can increase noise
and emissions and cause problems for vehicle
suspension, bus and ambulance access [Gadher
2004]. In rural areas, road humps, together with
chicanes and speed cushions, are
incongruous elements in the rural landscape and
have largely been avoided. They also add to the
long-term highway maintenance liability.
Sun Inn, Lower Burton: This pinch point and
signalised crossing facility has greatly suburbanised
the area with signs, lines and tarmac
5.1.6 Gateways are common traffic calming devices
and, if well-designed, can act as speed reducing
measures [DfT 2004c]. Traditionally they have
included coloured surfaces, roundels and brick
pillars that tend not to integrate well into their
surroundings. They are at their largest upon
entering National Parks, where they have
included road safety messages and tourist
information [Countryside Commission 1997].
5.1.7 Where gateways are deemed necessary, the use
of ‘historic and cultural references’ can ensure
they are locally distinctive [Kent Downs 2005:7]
and use existing features which slow traffic down
[Suffolk CC 2003]. Trees, verges, hedges, walls,
post and rail fencing, picket fences, cast iron
railings, metal parkland railings, timber bollards,
gatehouses, tollhouses and lodge buildings can
form the basis of any new gateways, as can
surface materials such as cobbles, setts, stone
paving or bound gravel [ibid.]. Case studies from
Suffolk tend to be simple and combine speed
limits and place name signs on unconventional
gateways.
5.1.8 Best practice information is fragmented, although
steps are underway to resolve this. A document
with good examples in National Parks will be
issued by the DfT in 2005; however, emphasis is
on public transport solutions to rural transport
problems. Guidance on rural road safety and
traffic calming is to be issued in 2005 by the
Countryside Agency (CA). This handbook will
contain completed submitted examples of local
authority schemes which demonstrate the steps
taken to balance the conflicts of achieving safe
traffic movement and the protection of local
character and the rural landscape. From these
examples best practice guidelines have been
drawn, not exhaustively, but to help fill the
guidance gap which currently exists.
5.2 Traffic calming and
environmental enhancement
5.2.1 Large-scale attempts to tailor traffic calming
schemes to their historic surroundings and
improve streetscapes are often found in historic
town centres. Early examples include the Carfax
scheme in Horsham, West Sussex [DoT 1992],
and the Bypass Demonstration Project, in which
six towns (including Petersfield and Wadebridge)
had extensive post-bypass town centre
enhancement works to assess how the benefits of
the bypass could be ‘locked-in’. It proved that
town centres can be transformed to the benefit of
pedestrians, cyclists, disabled people and civic
uses [Cullingworth & Nadin 2002].
5.2.2 Building upon these earlier examples, the four
towns of Bury St Edmunds, Halifax, Lincoln and
Shrewsbury were selected to pilot Historic Core
Zones – traffic calming and streetscape
improvements which respected the historic
surrounding environment [DETR 1999] (see case
study). TAL 1/96 summarises traffic management
techniques in historic areas [DoT 1996].
Chapter 5. Managing traffic: traffic calming and traditional measures
41

Chapter 5. Managing traffic: traffic calming and traditional measures
42 42
Section II: Evaluation of rural road management methods
Historic Core Zones
The zones aimed to address a range of issues,
including reducing through traffic, conflicts between
pedestrians and vehicles, on-street parking, town
centre servicing, excessive visual intrusion of signs,
vehicle speeds and inadequate facilities for
pedestrians and cyclists [ibid.]. In Bury St Edmunds,
previous schemes had already used quality
paving, carriageway narrowing and footway
widening [ibid]. The projects included the use of:
• The designation of restricted parking zones,
eliminating need for yellow lines and signs;
• Artificial stone, granite setts, York stone, fine
gravel surface dressing;
• 3m wide pavements;
• Minimum sized give way/ no entry/ one-way
street signs;
• Black-posted street furniture as standard;
• Tactile crossings provided with brass studs
screwed onto paving;
• Specially commissioned gateway feature for
20mph signs; and
• Specially commissioned decorative street
lighting, wrought iron railings and sign mountings
Conclusions from the projects were mixed. In
Bury St Edmunds, for instance, whilst traffic
speeds did not significantly reduce, traffic
volumes fell by 16% so too did pedestrian flows,
by 11%. A large majority of those surveyed felt the
completed scheme was a visual improvement
and more than half were satisfied with the scheme.
Concerns were aired regarding difficulty in
parking and the discomfort of cycling on non
standard road materials. Narrowed streets were
‘undoubtedly the reason for the reduction in illegal
parking’ but made some cyclists feel threatened
when vehicles could not pass them [DETR 1999].
Above: specially comissioned sign mounts.
Below: Chequer Square after repaving and
enhancement
Sensitive traffic calming schemes: the
Historic Core Zones Project

Section II: Evaluation of rural road management methods
5.3 Dealing with ‘rat runs’
Rat running traffic enters Dorchester on Herringston
Road to avoid the congested A354
5.3.1 ‘Rat runs’ – corridors with unsuitably high
volumes of through traffic – pose particular
problems for residents and non-car users due to
the disturbance caused and traffic speed. They
are, however, difficult to deal with in conventional
ways.
5.3.2 In some cases (such as Upper Loughrigg Lane,
Ambleside, and in Artington, Surrey) access-only
Traffic Regulation Orders (TROs) have been
applied to limit vehicular traffic. Whilst these are
said to have significantly reduced traffic volumes
[Countryside Commission 1997], they rely on
goodwill or enforcement to prevent misuse.
Locals who are aware the route is not closed are
likely to dilute any benefits gained from the TRO
and enforcement is described as ‘notoriously
difficult’ [Sustrans 2004a:3]
5.3.3 The most effective way to reduce traffic volumes
(and improve conditions for non-car users) is to
bar the road with physical measures. This usually
involves the installation of a gate or bollards. At
Plym Bridge, north of Plymouth, access is
afforded to car parks either side of the bridge but
through movements are prevented. A section of
Abnalls Lane, between Lichfield and Burntwood,
and King’s Head Lane, Bradpole are examples of
closing lanes in conjunction with National Cycle
Network (NCN) construction.
Hobb's Lane, Barrow Gurney, Somerset: Physical
closure to motor vehicles of a rat run
5.3.4 Even situations where the gate is left open are
said to be effective, since they give the
impression of potential closure [Sustrans 2004a].
In all cases, acceptance by local people (who
may be faced with inconvenience with the
closure) is of key importance. Selective use of
reverse measures (see Chapter 7) may reduce
the attractiveness of the route for through traffic.
5.4 Dealing with inappropriate
vehicle speeds
‘Speeding in villages is considered to be a
major local issue. Many roads in Dorset are
unsuitable for fast traffic with limited
footways and visibility’ [Dorset CC 1999: 45]
5.4.1 The above statement illustrates typical local
concern regarding inappropriate speed on rural
roads. A study of large Dorset villages with speed
limits found that average speeds exceeded the
limit in five out of six cases. Repeat surveys
following the installation of high visibility speed
limit signs found no perceptible change in
average speeds in four villages, a noticeable
decrease in one village and one case of
increased speeds [Dorset CC 1999].
5.4.2 The national speed limit applies to the vast
majority of rural roads; however the majority of
drivers do not reach these limits because it is
‘often difficult to do so’ [DfT 2004d]. Despite this,
drivers may travel too fast for the circumstances,
even when they do not exceed the speed limit
[IHIE 2005] although little is known about actual
speeds on many of these roads [Babtie Ross
Silcock 2001]. Due to matters of enforcement,
speed management issues should be formulated
in conjunction with the Police [IHIE 2005].
Chapter 5. Managing traffic: traffic calming and traditional measures
43

Chapter 5. Managing traffic: traffic calming and traditional measures
44 44
Section II: Evaluation of rural road management methods
Speed is a particular issue in Dorset villages
5.5 Applying a structured speed
limit regime
5.5.1 Speed limits for vehicles have been applied since
1865, when a 4mph limit was introduced and a
man with a red flag was required to walk in front
of steam traction engines [Hindle 2001]. The
30mph speed limit was introduced in 1934 for
built-up areas [DfT 2004b], and its continued
application in smaller villages has taken place
over the last ten years. A 70mph speed limit for all
other roads was set in 1965 with this being
reduced to 60mph on single carriageway roads in
1977 [DfT 2004b]. Willing compliance of speed
limits is best achieved when drivers perceive
them to be reasonable, appropriate [IHIE 2005]
and have an obvious purpose (eg busy locations
close to schools, pubs, churches) [Suffolk CC
undated].
30mph limits now cover most Dorset villages. Here in
Milton Abbas low wooden posts lessen the impact of
signs in the conservation area
5.5.2 Circular 1/93 sets out the current guidance on
speed limits; Traffic Advisory Leaflet (TAL) 1/95
sets out information on positioning speed limit
signs [DoT 1995]. Local policy has also been
developed in a few areas to supplement this
information [Suffolk CC undated]. Recent reports
have suggested that the use of 85th percentile
speeds (as advised in Circular 1/93) to set speed
limits may not be appropriate, since these are
heavily influenced by a minority of drivers
travelling at excessive speeds. The use of mean
speeds for speed limit determination is now
supported by the DfT.
5.5.3 National policy on 20mph limits is for their sparing
use, since they are costly, difficult to enforce and
the signs have considerable environmental
impact. The assumption is that their rarity should
ensure an association with areas requiring slow
speeds and especial driver care and attention.
Where used, they should be self-enforcing zones
with measures to slow traffic [Suffolk CC undated].
5.5.4 30mph limits are viewed as a suitable norm for
built-up areas, including villages [DfT 2004c],
preferably backed up with measures to slow traffic
[DETR & MAFF 2000]. Criteria for 30mph limits
are suggested as 20 or more houses over a
minimum of 600 metres, but with importance
given to the presence of key buildings [DfT
2004c]. Local policy sometimes recommends the
introduction of speed limits ‘in all communities
that want them’ where possible [Suffolk
undated:2]. Over 400 limits were introduced or
extended in Suffolk between 1994 and 1996 and
all schools are now set within speed limit zones.
5.5.5 Area-wide 40mph speed limits have occasionally
been introduced over the last 15 years [NFC
2005]. These generally apply to tracts of open
land, such as the New Forest and Dartmoor,
where accidents involving animals are a
recognised problem. These cover extensive
areas, with 50 miles of road being part of the
Dartmoor designation. Early results indicate
significant reductions in the ‘higher speed range’
and fewer accidents with stock animals [New
Forest Committee 2005].
The New Forest has instigated an area-wide 40mph zone

Section II: Evaluation of rural road management methods
5.5.6 Suffolk uses a 40mph speed limit policy to act as
a buffer zone outside 30mph limits, where
settlements are too sparse to justify a 30mph limit
or where conflict might occur between motorised
and non-motorised traffic. In many of these cases
it is remarked that the road layout does not
naturally slow traffic [Suffolk undated]; of course,
works to remedy this could provide an alternative
to speed limit imposition. Transitional speed limits
(also known as buffer limits) are also promoted by
Suffolk but the DfT has found them to have limited
effectiveness [DETR 2000, DfT 2004d].
5.5.7 Circular 1/93 currently advises that 50 and 60mph
speed limits are appropriate on rural roads where
there are few pedestrians or where full crossing
facilities are provided by bridge or subway [DoT
1993]. However, few rural roads have segregated
full crossing facilities and the danger roads with
fast traffic pose to non-car travellers may
suppress pedestrian trips in the first place.
5.5.8 The White Papers on transport [DETR 1998] and
the countryside [DETR & MAFF 2000] and the
government’s road safety document [DETR
2000a] wished to see a systematic approach to
speed management policy to ensure the ‘right
speed limits can be imposed on the right roads’
[ibid]. Formulation of this policy was intended to
take into account environment and social
objectives as well as road safety [DETR 1998]
and incorporate adequate consultation [DETR &
MAFF 2000].
5.5.9 Many varying hierarchies have been suggested.
The Transport Research Laboratory (TRL)
research divided rural roads into four categories
based largely on the highway geometry. Category
1 routes are those with steep hills, tight bends,
many junctions and accesses and low speeds. At
the other extreme, category 4 routes have limited
numbers of junctions and accesses and a good
horizontal and vertical alignment [Babtie Ross
Silcock 2001]. This categorisation assumes that
category 1 roads are ‘poor quality’ and category 4
roads are ‘high quality’ on the basis that the
objective is to ensure speedy, smooth travel for
motor vehicles.
5.5.10 A scoring approach is suggested for allocating
roads into the 4 tiers of the speed management
hierarchy, against the following criteria:
• Strategic nature of the road
• Traffic volume
• Accident rates
• Physical features (poor horizontal and vertical
alignment)
• Number of carriageway lanes
• Frequency of accesses
• Numbers of pedestrians, cyclists and equestrians
[Babtie Ross Silcock 2001]
5.5.11 The Transport Act 2000 required a report on the
subject to be submitted to parliament [ibid].
This report recommended that a simple,
understandable hierarchy of no more than three
tiers be devised to cover existing and proposed
rural roads [ibid.]. This was intended to emulate
the Netherlands’ three-tier Sustainable Safety
hierarchy, as illustrated in Table 5.1 below, in
which gateway features indicate the transition
points in the hierarchy.
Table 5.1: Netherlands Road Hierarchy
Hierarchy Level Notes
Motorways High quality routes for through traffic
100 or 120km/hr speed limits
Distributor Roads Lesser quality routes for through traffic
80km/hr speed limits
Segregation with parallel routes
for slower vehicles
Access Roads Routes with access to properties
Users share the space and, to
indicate this, there are no centre lines
60km/hr
5.5.12 The proposed UK hierarchy is shown in Table 5.2
overleaf.
5.5.13 It was proposed that in order to make the
hierarchy as simple as possible, each tier should
relate to particular categories of existing road
classification. This would necessitate some roads
being reclassified in order to fit within the
hierarchy and some works to ensure that the
speeds are largely self-enforcing [Babtie Ross
Silcock 2001].
5.5.14 Following research by the Transport Research
Laboratory (TRL) [Lynam et al 2004], a report,
New Directions in Speed Management, was
issued, concluding that a national hierarchy
where speed limits were set according to the
Chapter 5. Managing traffic: traffic calming and traditional measures
45

Chapter 5. Managing traffic: traffic calming and traditional measures
46 46
Section II: Evaluation of rural road management methods
Table 5.2: Proposed Speed Management Hierarchy [Babtie Ross Silcock 2001]
Tier Notes Proposed Speed limit Road
Classification
Tier 1 Through routes of national or regional 70mph dual carriageways; Motorways &
importance, giving priority to efficient 60mph single carriageways A roads
movement of vehicles
Includes sections on poorer quality 50, 40 and 30mph
roads and within towns and villages where necessary
Tier 2 Mixed use roads primarily for motorised 50mph B roads
traffic with limited numbers of vulnerable
road users and occasional accesses
Includes sections with frequent 30mph
accesses and junctions
In exceptional circumstances where there are 20mph
‘restricted layouts and many vulnerable users’
in villages
Tier 3 Local roads primarily for access, 40 or 30mph Unclassified
between villages, through villages and
where vulnerable road users are to be
expected and not fully segregated or protected
Low speed environments: (roads of 20mph
restricted widths and quiet lanes)
function of the road would be both financially and
environmentally costly. It instead proposed that a
Speed Assessment Framework be developed to
assist Local Highway Authorities [DETR 2000].
This proposes to divide rural roads into two
categories according to their traffic function for
speed management purposes, as shown below
in Table 5.3.
Table 5.3: Proposed Speed Assessment Framework
Hierarchy Comments Suggested
speed limits
Upper Tier through routes where 50 or 60 mph
mobility is important.
Typically A and B roads
Lower Tier local or access functions 40 or 50mph
where quality of life
is important
Typically C and D roads
5.5.15 Use of this two-tier system could enable the
abolition of the current system of road
classification in rural areas and instead allow
roads to be differentiated according to speed
limits [Slower Speeds Initiative 2005]. Although
there is disagreement over the exact limits, there
is some support for this approach [CPRE 1997,
1999, IHIE 2005, Slower Speeds Initiative 2005].
Deviations from the speed limits suggested in the
framework (such as 30mph in 40mph zones,
60mph in 50mph zones, for instance) could be
signed with normal speed limit signs where
necessary [ibid]. Other suggestions include
20mph limits for villages [CPRE 1997, 1999] and
quiet lanes (with gateway speed limit signs)
[Slower Speeds Initiative 2005].
5.5.16 Delimitation of speed limit zones by the presence
(or otherwise) of central white lines has been
suggested [Slower Speeds 2005]. This could, for
instance, use white lines to signify strategic upper
tier roads and their absence to signify lower tier
routes [Slower Speeds Initiative 2005]. The
adoption of a national village speed limit, using
village nameplates as boundaries [IHIE 2005] is
another suggested approach, similar to that
commonly applied in EU countries [DETR 2000].
5.6 Speed limit enforcement
5.6.1 The use of cameras is commonplace in rural
areas for speed limit enforcement and accident
reduction purposes (although fixed cameras are
not widespread in Dorset). Research is
inconclusive and opinion heavily divided and
politicised. Arguments often concentrate on the
displacement of concentration from road
conditions to constant vigilance for cameras and

Section II: Evaluation of rural road management methods
on the speedometer and the degree to which
higher speeds are inherently more dangerous or
accident-prone. According to Hamilton-Baillie,
their installation is an admission that standard
traffic engineering has failed, since drivers feel
safe enough to exceed the speed limit [Glaskin
2004a]. Those who present the main speeding
problem are found to be least respectful and least
fearful of camera installation and least
attitudinally influenced by them [Corbett & Simon
1999].
Government advice is to use vehicle activated signs
sparingly
5.6.2 Vehicle activated signs are used to help enforce
speed limits and warn of hazards [DfT 2003a].
They have been found to reduce speeds and
lower accident casualty rates [IHT 2004a]. In
general, the following mean speed rates have
been noted at sign locations:
• 3-9mph at speed limit reminders
• up to 7mph at junction and bend warning signs
• up to 4 mph at safety camera warning signs
[DfT 2004b]
There are 200 vehicle activated signs
across Norfolk; these are attributed in causing a
one-third reduction in accidents at trial sites [DfT
2004b] and they are supposed to be
‘extremely popular’ with the travelling public
[Thomas 2004].
However, government guidance is to use them
sparingly and only where the problem cannot be
remedied by fixed signing [DfT 2003a]. They are
found to be most effective when mobile, which
avoids drivers becoming immune to them
[Sustrans 2004a]. There are also issues relating
to visual amenity.
Chapter 5. Managing traffic: traffic calming and traditional measures
47

Chapter 6. Managing traffic: innovative measures
48 48
Chapter 6: Managing traffic: innovative measures
Recent development in Bradford Peverell: The new street environment and
position of the walls and buildings is designed to modify driver behaviour
6.1 Can highway design
be improved?
6.1.1 As indicated in section 2.1, highway design
is comprised of three components – road width,
road depth and the visual characteristics which
border them. Recent thinking suggests that the
visual characteristics of the road should no longer
be the result (and afterthought) of designing the
width and depth of the highway. An alternative
approach to selecting slices of standard, typical,
‘off the shelf’ design is to consider how the three
separate dimensional components can be
brought together to meet particular requirements.
Each of the components can be reviewed for this
task, as follows:
Component 1: width (dimensions and geometry)
6.1.2 Buildings should be arranged to fit the local
context and subsequently roads fitted in the
spaces created by the buildings, as suggested in
Places, Streets and Movement [DETR 1998b]. It
is important to:
• Remember what the highway surfaces are going
to be used for and by whom. They must be
suitable for the users to travel over; be wide
enough for appropriate users sharing the surface
to pass each other and be of sufficient dimension
for appropriate users to manoeuvre over without
undue effort or number of movements. This
should be checked with swept path analysis,
which examines the road widths necessary to
accommodate certain vehicle types.
• Ensure that the speed of travel of those highway
users is restricted to the determined design speed
without, wherever possible, the need for special
speed reducing features that cause discomfort,
undue hindrance or confusion to highway users,
especially the emergency services or those with a
mobility handicap
• Ensure that each of the proposed highway
elements within a development has a meaningful
purpose, is a practical route between destinations
and is easy for people to navigate through (i.e.
legible)
• Finally, ensure the edges of highway to follow the
built form or other design lines to enhance the
sense of place.

Section II: Evaluation of rural road management methods
Glebe Close, Abbotsbury: In this recent development
the edge of the highway follows the building lines
Component 2: depth (construction layers)
6.1.3 The second element relates to a construction
which is sufficient for the purpose. Practical
considerations mean that, typical construction
layers which are ‘deemed to satisfy’ the LHA are,
and will, remain the preferred choice of the
developers. There is a robust argument in favour
of specifying these by the numbers of dwellings
served. However, a key difference of applying the
‘3 element’ approach is that the material used for
the surface layer of the highway should vary
according to where the road is located and the
context of the envisaged traffic.
Component 3: visual characteristics contributing
to local distinctiveness
6.1.4 If the highway is wide enough and strong enough
for purpose then attention can turn to how
highways can be integrated into the built form of
the development in a way which adds to a sense
of place and provides local context. This can,
according to the local situation, either involve very
traditional solutions or the radical mixing of
previously contradictory features.
6.1.5 The environment can have a significant effect on
driver behaviour. Traditional approaches to road
design have provided for vehicles exceeding the
speed limit and this has often resulted in layouts
that make these speeds more likely. The wish is
to explore the feasibility of turning this around by
creating environments which dictate the prevailing
speed of motor traffic rather than accommodate it,
while maintaining or improving upon current levels
of safety.
6.1.6 Whilst the positioning of key buildings and
structures (e.g. railings, street trees) is accepted
as an important factor in forming a place – the
combination of space, form and focus – their
positioning is also an important consideration for
influencing traffic movement. This value has only
been recognised recently.
Buildings ahead of a t-junction can be used as a
traffic calming mechanism
6.1.7 The placing of these features, by virtue of their
bulk and form, can be used to positively influence
the speed of vehicles. Placing key buildings
ahead of the stem of a 'T' junction is recognised
as a traffic-calming device. By placing features
directly in the driver's line of sight, the route to be
driven is less certain and has to be the subject of
a deliberate, selective thought process. This is
described as positive intimidation, since drivers
are made to think more carefully about how they
navigate between buildings, hedges and other
street features; as such it can be used to bring
about a reduction in vehicle speeds. This is a key
part of the recent innovative highway design and
can have a significant influence on how highway
users behave.
6.1.8 An abundance of road markings and signs assists
driver understanding of the road environment and
can help drivers interpret the upcoming road
direction and potential hazards. Where the
backdrop to the road does not distract the
driver, it is these engineering features which
predominately influence how the driver behaves.
Removing them requires drivers to think more
carefully about their route and rely on other visual
clues in the road environment to guide them.
Street trees both help to give places local identity
and can act as a traffic calming device
Chapter 6. Managing traffic: innovative measures
49

Chapter 6. Managing traffic: innovative measures
50 50
Section II: Evaluation of rural road management methods
Broadwindsor - Using the road environment
to slow speeds
Broadwindsor in Dorset was one of the first
places to demonstrate a creative response to
local authority highway standards. Vehicle
speeds are moderated by the winding road
layout and forward visibility being lessened
by the careful positioning of houses. The
streetscape provides a social space for play.
6.2 Successful design:
the Dorset perspective
6.2.1 Good examples already exist where highways
and transport professionals have worked
successfully in partnership to raise design quality.
Considerable lessons have particularly been
learnt over the past 15 years in Dorset on how to
fully integrate highways and high quality urban
design into new residential developments. This
has been achieved through close collaboratative
working between the officers at the District
Councils, in their capacity as Local Planning
Authorities, and the County Council, in its capacity
as Local Highway Authority.
6.2.2 A range of developments across the county bear
witness to the harmonious inclusion of highways
into successful urban design. This local success
was recognised by the national award in 2003 of
Beacon Council status to West Dorset District
Council for its efforts to improve the quality of the
built environment. Case studies includes the
internationally-acclaimed urban extension to
Dorchester at Poundbury as well as the more
modest village schemes at Abbotsbury,
Broadwindsor, Bradford Peverell and Stratton,
amongst others. It also includes Charlton
Down, the new settlement under construction at
the former Herrison Hospital site. A recent update
to the county’s highway design guidance
incorporates the lessons learned in these
developments [Dorset CC 2002] and these
lessons are explained in the next section.
6.3 The application of psychology
‘It is apparent that the slavish application
of highways safety standards does not
inherently make the roads safer. The diversity
of rural lanes is such that an individual
approach is required to each situation taking
into account the existing character and the
intended use’ [Tunbridge Wells BC 2004]
‘Motorists can pick up enough clues from the
environment around them to use their brains
and drive safely… If you’re driving down a
street full of shops and there’s a sign saying
‘Beware Pedestrians’, then what it’s really
telling you is you’re stupid because only an
idiot would not realise that’ [Ben Hamilton
Baillie in Glaskin 2004]
6.3.1 The term ‘reverse measures' [Sustrans 2004a] is
used to refer to projects which turn on its head the
perceived wisdoms of applying traditional
engineering solutions [Gadher 2004]. Such
traditional solutions have tried to eliminate danger
by segregating road users and designing-out
narrow and winding sections of roads. Provision
has even been made to make ‘roads more
forgiving of careless driving’ [Adams 2005:35] and
ensuring the safety of vehicles exceeding the
speed limit. In terms of solving problems, it has
been asserted that there is a difference between
a traditional ‘safety regulation culture way of doing
this and …. an evidence-based way of doing this’
[Thomas 2004a].
6.3.2 Traditional ‘over-engineered solutions’ [Sustrans
2004a] have led to negative changes in driver

Section II: Evaluation of rural road management methods
behaviour, such as higher vehicle speeds and a
dependency on road signs to inform drivers about
the road ahead. Solutions which lead to negative
driving outcomes can include the seemingly
innocuous white line, which a Surrey University
study found increased driving speeds [Uzzell &
Leach, 2001].
6.3.3 In fact, the travelling environment which
surrounds the road in general can have a
significant effect on driver behaviour [Thomas
2004, Hardy 2004]. Research has found that
more complex environments (including
mountainous terrain or busy urban areas) tend to
be associated with slower driving speeds
[Thomas 2004, Hardy 2004]. Rural lanes tend to
be effective at enforcing low speeds [Thomas
2004] because the positioning of buildings, banks,
hedges and trees [Hardy 2004] creates narrow
and winding (and thus complex) environments.
This is similar to the approach adopted in urban
areas, where the positioning of buildings or
structures is now used as a positive influence to
reduce vehicle speeds (such as at Poundbury,
in Dorchester).
What bounds a rural lane will influence driver
behaviour and speed: Bickfield Lane, Compton
Martin, Somerset
6.3.4 Some places are said to have the feel of outdoor
rooms which can be linked together. ‘…drivers,
though travelling much faster are conscious of the
spaces they go through. This awareness, and an
impression of the way ahead, is derived from the
position of the surrounding buildings and
landmarks. It affects the way they drive and adds
to the official instructions and information of traffic
signs’ [Davis 1994:5].
6.3.5 In urban areas, where there are greater levels of
activity and non-car users [Sustrans 2004a],
uncertainty forces drivers to pay more attention to
the road conditions and places more responsibility
on them for their actions [Gadher 2004]. In fact,
the presence of people and activity alongside the
road has been found to be the most powerful
natural deterrent to speeding [Slower Speeds
Initiative 2003] and Adams notes that ‘as
schooling fish trying to avoid predators and
swarms of cyclists asserting their right to the road
have learned, there is safety in numbers’ [Adams
2005:42]. The levels of driver care which result
from this uncertainty does not often extend to the
rest of the rural road network [Sustrans 2004a].
6.3.6 Different drivers react in different ways and the
link between ‘how people behave and how that
correlates to road safety’ has come under recent
review [Thomas 2004a]. The Surrey University
research referred to above has, for instance,
found that:
• Drivers travelled faster than they said- or thoughtthey
did;
• Drivers felt they drove more slowly than other
drivers; and
• Different groups of drivers act in different ways –
commuters look for the quickest route; visitors
look for direct or signed routes.
6.3.7 The results of psychological research are being
used to find effective solutions to transport
problems. Applying psychological and perceptual
techniques which take into account driver
behaviour and influence it by making the road
environment seem more complex or intimidating
are termed natural calming [Hardy 2004] or
psychological traffic calming [Thomas 2004].
There is disagreement in some circles over its
scope [ibid].
6.3.8 It is being recognised that alternative approaches
where the environment dictates the prevailing
speed of motor traffic, rather than accommodate
it, may be possible and desirable. It is suggested
that ‘the best action may be to remove highway
engineering from the road altogether and
reintroduce natural features so that the travelling
landscape dictates the level and speed of traffic
(and not vice versa)’ [Sustrans 2004a]. Many of
these schemes are more subtle than traditional
hard engineering schemes and the travelling
public may not ‘understand why it is different…it’s
because of what’s not there’ [Moylan in Thomas
2004a].
6.3.9 Whilst non-standard design can be more time
consuming [Thomas 2004a] and higher quality
materials and furniture more expensive to
purchase, reverse measures often rely on simple,
cheap ideas and less engineered measures.
Chapter 6. Managing traffic: innovative measures
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Chapter 6. Managing traffic: innovative measures
52 52
Section II: Evaluation of rural road management methods
6.4 Changing attitudes
‘Please remember, what the signs don’t tell
you is that when travelling on a minor road
you will have to cope with all manner of
unexpected hazards such as stray animals
unaware of the green cross code, sightseers
driving at the pace of a horse and trap,
larger vehicles gaining access to properties,
bends and hills and finally a lot of other
cars all having to encounter the same
potential hazard as you!’ [Devon CC 1992]
6.4.1 The road can be a place for social interaction and
thus Hamilton-Baillie advocates ‘social solutions’
to rural road problems [Gadher 2004] which look
to change public attitudes, as well as driver
behaviour. The RAC Foundation have asserted
that drivers should be conditioned ‘to rely less on
the accelerator’ [Gadher 2004] and publications
such as the guide to road signs quoted above
[Devon CC 1992] highlight both that rural areas are
different and that the unexpected cannot be
signed for.
© John Allen/Images of Dorset
The Square, Corfe Castle: streets are a space
for social interaction
6.4.2 Raising awareness and changing attitudes in rural
areas is rarely highlighted in literature. However, it
may be key to highlighting problems and ensuring
public support for schemes.
6.4.3 Involvement of communities in promotion and
managing traffic reduction and traffic calming is
considered important [Countryside Commission
1997]. Certain places have used a wide array of
promotional material to raise awareness of the
problems and solutions. This has included car
stickers (Chilterns, East Sussex, New Forest,
Wiltshire’s Quiet Lanes), badges, coasters and
posters (East Sussex). Pledges by drivers to drive
slowly or with great consideration are in
existence, with people being asked to sign a
commitment to slow down [East Sussex CC 2005].
Collective action with
drivers pledging to
modify their speed is
promoted with East
Sussex’s Slower Speed
Commitment
6.5 Shared spaces
Re-designing High Street Kensington
6.5.1 The concept of shared spaces emanates from
the Netherlands and has been pioneered by Hans
Monderman, a traffic engineer in the Friesland
region. According to him, ‘the principal [road]
network is for traffic, the rest is public space and
Kensington High Street has been redesigned by the
Royal Borough of Kensington & Chelsea to improve
the streetscape by minimising road markings and
simplifying carriageway and pedestrian crossing
layouts. This received accolades from the Civic Trust,
Institute of Lighting Engineers and the London Cycling
Campaign [Thomas 2004a]. A streetscape manual has
been published [RBKC 2004] to disseminate the
successful practices adopted. Following on from the
success of this scheme, Exhibition Road and Sloane
Square are to receive more radical treatment, with
minimal differentiation between footways and
carriageways [Local Transport Today 2005].

Section II: Evaluation of rural road management methods
Magor Home Zone
Magor, in Monmouthshire, was the only rural
streetscape in the UK to be part of the initial
pilot scheme. Following a Planning for Real
exercise, Home Zone Challenge monies have
been used to upgrade the central village
square and the immediately adjacent approach
roads, all set in a conservation area. Although
kerbs and materials differentiate pedestrian
and vehicle space, there is no change in
height. Parking - of particular importance to the
local retailers - is indicated by paviours but no
white lining. The resulting scheme provides a
much improved streetscape.
should be shared without excessive signs, road
markings and other restrictions to social
behaviour’ [IHT 2004a: 18]. Shared spaces relate
to the reduction or removal of obvious delineation
between space for motorists and non-motorised
road users – traditionally divided into carriageway
and footway. This can potentially involve the
removal of kerbs, signs, guard rails and markings.
6.5.2 These techniques are used on the basis that
uncertainty leads to more cautious, slower driving
by motorists [Glaskin 2004a], allowing the safe
passage of all traffic, be it pedestrian, cyclist or
motorist. Eye contact between road users
increases as a necessity [Glaskin 2004a]. A
secondary advantage is that the ‘removal of signs
and road markings gets rid of distractions and
improves sight lines’ [IHT 2004a:18].
6.5.3 The central square in Drachten is the most cited
and visited example of a shared space, where a
congested traffic signal junction was removed to
create an open, paved plaza with no priority
markings. The junction is negotiated with ease by
all types of transport. Accidents rates have fallen
and journey times have improved [Glaskin
2004a]. Similar measures are being adopted
elsewhere in the Netherlands, Sweden [Glaskin
2004a] and Denmark [Gadher 2004]
© Graham Smith
The removal of signs, lines and kerbs in Oosterwolde
creates a uncertain road layout where all road users
must proceed with caution
6.5.4 The scope for reducing, or altogether removing,
obvious delineation between surfaces used by
motor vehicles and those by non-motorised users
will appear in the MfS. However, there are
projects underway in the UK which have adopted
shared space ideas; some of these are being
funded through the LTP process [Suffolk CC 2004].
6.5.5 Home Zones are the English version of the Dutch
Woonerven (which translates literally as ‘living
streets’). They are delineated, designated areas
which pedestrians and vehicles share. Although
mainly restricted to lightly trafficked residential
parts of urban areas.
6.5.6 Between 1996 and 1998, Norfolk CC trialled
projects in Starston and Stiffkey to return a more
natural appearance to village streets. These
Chapter 6. Managing traffic: innovative measures
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Chapter 6. Managing traffic: innovative measures
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Section II: Evaluation of rural road management methods
aimed to reduce vehicle speeds through careful
design, removal of heavy engineering and street
clutter and by showing drivers they are about to
enter a space in which residents and non-car
users would be present [CPRE 2004]. Measures
included:
• Narrowing, rather than widening, roads;
• Use of natural materials for traffic calming
[CPRE 2004];
• Sign removal; and
• Removal of white line markings [Thomas 2004].
6.5.7 Whilst the street clutter removal element is now
widely embraced across the county [ibid], the
County Council has not adopted the project
elsewhere. It found the schemes to be of a limited
success, achieving 1-2mph reductions in speed
and instead now prefers vehicle activated signs –
of which it has some 200 – which are thought to
cause a 5mph speed reduction. Whilst these are
said to be ‘extremely popular’ [Thomas 2004] they
do not bring about the wider benefits which would
stem from improving the physical appearance of
the street.
6.5.8 Adopting unconventional approaches to
streetscape design often results in fears over
litigation. There is however no legal obligation to
make safety the paramount or only consideration
in re-design. The deputy leader of the Royal
Borough of Kensington & Chelsea (RBKC)
suggests that ‘if that were the only consideration
we’d end up closing the streets’ (see case study)
[Thomas 2004a]. RBKC have addressed the
litigation concerns in three ways; namely by:
• Using CCTV cameras to monitor accidents;
• Emphasising that there is no evidence to suggest
alternative ways are any less safe; and
• Ensuring that written records are kept which
illustrate the thought process which led to the
chosen non-standard design.
6.6 Reassessing village roads
6.6.1 Local Authorities in Suffolk have resolved to take
into account the environmental impact of traffic
calming on local distinctiveness [Suffolk CC
2003]. They state that, to achieve this, schemes
should:
• Integrate with the existing vegetation, topography,
buildings and other structures and ensure that
new features are in keeping with the existing road
pattern;
• Reinforce local identity by attention to detail,
materials and street furniture choices;
• Ensure the scheme does not increase air or noise
pollution (light pollution is not mentioned);
• Not use measures which rely on high visual
impact;
• Cater for pedestrians and cyclists;
• Avoid the widespread use of bollards;
• Consider the use of locally-produced materials -
they may be cheaper;
• Consider that carriageway thinning can allow for
planting; and
• Incorporate simple surface dressed build-outs
[Suffolk CC 2003].
6.6.2 Existing on-street parking (such as in market
squares) and the additional on-street activity it
leads to can calm traffic by adding an extra
dimension of complexity for drivers. Considering
its use to slow traffic is suggested in some design
guidance [Derbyshire CC undated, Suffolk CC
2003] and research into its location to modify
driver behaviour is suggested in the Manual for
Streets (MfS) brief.
Fore Street, Evershot: parked cars on the street can
introduce an extra dimension of complexity which
may be used to help slow traffic.