Welsh Government Active Travel Guidance
February 2020
Image courtesy of Chandra Prasad / Sustrans Contents
PART 1 - Delivery
Chapter 1: Part 1 Introduction 11
Chapter 2: Policy and Legislative Context 17 2.1 Introduction 17 2.2 Well-being of Future Generations Act 17 2.3 Environment (Wales) Act 2016 19 2.4 Programme for Government 19 2.5 Planning Policy Wales 20 2.6 Equalities 21 2.7 WelTAG 23 2.8 Sustainable Drainage 24
Chapter 3: The Duties on Local Authorities 25 3.1 The Duties under the Active Travel Act 25 3.2 Timescale for the Submission of the Active Travel Network Map 26 3.3 Where the Duties Apply 26
Chapter 4: Definitions 28 4.1 Definition of Active Travel and Active Travel Routes 28 4.2 Terminology 28 4.3 Definition of Active Traveller - walkers, cyclists and other highway users 28
Chapter 5: Planning the Network 31 5.1 Who the network is for? 31 5.2 Designated Localities 32 5.3 Crossing Administrative Boundaries 32 5.4 Rurality 32 5.5 Mapping the network 33 5.6 Prioritisation and Network Coverage 35 5.7 Preparing the Map 36
© Crown copyright 2020 WG40120 Mae’r ddogfen yma hefyd ar gael yn Gymraeg / This document is also available in Welsh
2 Consultation Draft 2020 5.8 Planning Status 37 5.9 Routes that are not owned by a local authority 37 5.10 Training and Support 38 5.11 Approving the Map 38 5.12 Publishing the Map 38 5.13 Reviewing the Map 39 5.14 Partial Review of the Map 41 5.15 Continuous improvement 42 5.16 Funding the Network 42
Chapter 6: Consultation and Engagement 44 6.1 Preparation of the Map 44
Chapter 7: Promoting Active Travel 47
Chapter 8: Monitoring and Reporting 48 8.1 Reporting Duties 48 8.2 Review of the Act 48
Chapter 9: Provision for Walkers and Cyclists when Changes are Made to the Highway 49 9.1 Duties under the Act 49 9.2 Creation and Maintenance of the Highway 49 9.3 Interference with Highways 50 9.4 Acquisition of Land for Highway Purposes 50 9.5 Traffic Regulation and Traffic Regulation in Special Cases 51 9.6 Parking 51 9.7 Obstructions 51 9.8 Street Works 52 9.9 Traffic Management 52
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Chapter 10: Part 2 Introduction 55 10.1 Activ e Travel Wales 63 10.2 Highway Desin and the Active Travel Act 64 10.3 Status of the Guidance 68 10.4 Trunk Roads 68 10.5 Local Roads 68 10.6 New Develoment 69 10.7 Innovation and Experimentation 69 10.8 Design Elements 69 10.9 Keeping Standards Up to Date 70
Chapter 11: Stakeholder Participation, Engagement and Consultation 63 11.1 Introduction 63 11.2 Principles of Good Practice 63 11.3 Tools for Participation and Consultation 66 11.4 Action Travel Network Map Consultation 68 11.5 Scheme Delivery and Sultation 70
Chapter 12: User Needs 72 12.1 Similarities and Differences 72 12.2 Design Principles 73 12.3 Inclusive Design 73 12.4 Pedestrians’ Needs 76 12.5 Widths for Pedestrian Routes 81 12.6 Gradients for Pedestrian Routes 83 12.7 Surface Material for Pedestrian Routes 83 12.8 Reference for Pedestrian User Needs 84 12.9 Cyclists’ Needs 84 12.10 Why do People Cycle? 85 12.11 Minimising the Effort Required to Cycle 86 12.12 Dimensions of Cycles commonly in use 89 12.13 Headroom for Cycle Routes 92
4 Consultation Draft 2020 12.14 Typical Cycling Speeds 92 12.15 Visibility Dimensions for Cycle Routes 93 12.16 Gradients on Cycle Routes 94 12.17 Space required for Cycling 95 12.18 Widths for Cycle Tracks 96 12.19 Widths for Cycle Lanes 97 12.20 Additional Width Adjacent to Vertical Features 98 12.21 Width Considerations for On-Carriageway Cycling 99 12.22 General Lane Widths on Carriageways 99 12.23 Width at Pinch Points 100 12.24 Surfaces for Cycle Routes 101
Chapter 13: Network Planning 104 13.1 Introduction 104 13.2 Showing the Existing Routes on the Active Travel Network Map 107 13.3 Showing Proposed Routes on the Active Travel Network Map 107 13.4 Integration with Policies, Plans, Programmes and Infrastructure 108 13.5 Network Planning for Walking 110 13.6 Network Planning for Cycling 117 13.7 Validation of Active Travel Network Maps 128 13.8 Prepare and Submit Active Travel Network Map 129 13.9 Prioritising and Delivering the Active Travel Schemes 129
Chapter 14: Design for Walking & Cycling 133 14.1 Introduction 133 14.2 Co-Production of design 134 14.3 General design considerations 135 14.4 Basic Network 137 14.5 General Design Approachs 138 14.6 Reducing the Speed and Volume of Motor Vehicles 139 14.7 Filtered Permeability 139 14.8 Reallocation of road space 140 14.9 Vehicle Restricted Areas 141 14.10 Pedestrian prioritised and informal streets 143 14.11 Link Design Considerations 144
5 Consultation Draft 2020 14.12 Segregration between Cyclists and Pedestrians DE023, DE024, DE032 and DE033 146 14.13 Type of segregation 148 14.14 Monitoring and Management 150 14.15 Pedestrians on Links - DE001, DE002, DE003 and DE004 152 14.16 Gradients, Ramps and Steps 154 14.17 Cycling on Links - Introduction 152 14.18 Traffic Lane Widths and Car Parking 154 14.19 Cycling in All-Purpose Traffic Lanes 156 14.20 Reducing Traffic Volumes and Speeds DE005, DE006, DR007 156 14.21 Contraflow Cycling DE009 and DE010 157 14.22 Traffic Calming DE005, DE006 and DE007 157 14.23 Quiet Streets DE011 159 14.24 Cycle Streets DE012 159 14.25 Cycle Lanes DE009, DE013, DE014, DE015, DE016 and DE017 160 14.26 Car parking / loading and Cycle Lanes DE015 161 14.27 Cycle Lanes at Side Roads DE016 161 14.28 Removal of centre lines DE017 161 14.29 Cycle lanes with light segregation DE018, DE019, DE020 162 14.30 Stepped Cycle Tracks DE021 and DE022 163 14.31 Cycle Tracks Alongside the Carriageway DE023 and DE024 164 14.32 Cycle track crossing of side roads DE025 DE026 165 14.33 Side Road Entry Treatments and Blended Junctions DE039 and DE040 167 14.34 Cycle tracks in centre of carriageway DE027 168 14.35 Cycle Lanes/Tracks at Bus Stops DE028 DE029 DE030 DE031 170 14.36 Cycle Tracks away from Roads DE032 and DE033 172 14.37 Design and Construction of Routes away from the Highway 173 14.38 Cycling on Rural Roads 175 14.39 Transitions between Cycle Tracks and the Carriageway DE034 177 14.40 Cyclists and public transport routes 179 14.41 Bus lanes and bus-only streets DE035 180 14.42 Cycling and Trams 180 14.43 Crossing and Junction Design - General Principles 181 14.44 Considerations for Pedestrian and Cycle Crossings 183 14.45 Crossing Types 185
6 Consultation Draft 2020 14.46 Uncontrolled Crossings DE036 DE037, DE038, DE039 and DE040 186 14.47 Central median strips DE041 187 14.48 Zebra crossings DE042 188 14.49 Signalised crossings away from junctions DE044 and DE045 188 14.50 Crossings at signal-controlled junctions 189 14.51 Cycle priority crossings DE037 190 14.52 Simple uncontrolled crossings DE036 191 14.53 Uncontrolled crossing with refuge DE038 191 14.54 Parallel Crossing for Pedestrians and Cyclists DE043 191 14.55 Signalised Cycle and Pedestrian Crossings (Toucan) DE045 192 14.56 Pedestrian and Cycle Bridges DE046 193 14.57 Subways and Underbridges DE047 193 14.58 Wheeling Ramps DE048 195 14.59 Cyclists at Priority Junctions 195 14.60 Unmarked Informal Junctions DE048 196 14.61 Signalised Junctions for Cyclists - General Considerations 197 14.62 Advanced stop lines (ASLs) DE050 198 14.63 Cycle signal stages 200 14.64 Exemption from banned turns 202 14.65 Intergreen Times 202 14.66 Permanent green cycle signal on bus gate 202 14.67 Diagonal cycle crossing stage during all red 202 14.68 Cycle bypass at traffic signals DE051 203 14.69 Uncontrolled cycle crossing at signalled junction 205 14.70 Guiding cyclists through signalised junctions DE052 205 14.71 Two stage right turn at traffic signals DE053 206 14.72 Hold the Left Turn DE054 207 14.73 Simultaneous green signals DE055 208 14.74 Trixi Mirrors (Blind spot mirrors) 208 14.75 Cycle provision at signalised roundabouts 209 14.76 Cycle Provision at Unsignalised Roundabouts 209 14.77 Mini Roundabout DE056 210 14.78 Compact (or “Continental”) roundabouts DE055 211 14.79 Conventional Unsignalised Roundabouts 212 14.80 Dutch Style Roundabout DE058 213 14.81 Informal roundabouts at unmarked junctions 214
7 Consultation Draft 2020 Chapter 15: Integration with Public Transport 217 15.1 Introduction 217 15.2 Improving Walking Access to Public Transport 217 15.3 Improving Cycling Access to Public Transport 218 15.4 Carriage of Cycles on Public Transport 218 15.5 Cycle hubs and Services at interchanges 221 15.6 Park and Cycle 223
Chapter 16: Street Furniture and Cycle Parking 225 16.1 Introduction 225 16.2 Seating 226 16.3 Public toilets 227 16.4 Signs for Pedestrians 228 16.5 Planting and Hard Landscaping 231 16.6 Litter Bins 233 16.7 Cycle Count Displays 234 16.8 Cycle Parking 234 16.9 Signs for Cyclists 243
Chapter 17: Related Facilities 250 17.1 Introduction 250 17.2 General Processes for Highway Works 250 17.3 Highways Created by Welsh Government and Highway Authorities 253 17.4 Highways Created by Private Sector Developments 253 17.5 Highway Improvement Schemes 256 17.6 Highway Maintenance Schemes 257 17.7 Managing Highways 258
Chapter 18: Construction, Maintenance and Management 262 18.1 Introduction 262 18.2 On-carriageway cycle routes 262 18.3 Coloured surfacing 263 18.4 Footway construction 263 18.5 Footpath construction 263 18.6 Cycle Track Construction 264
8 Consultation Draft 2020 18.7 Tactile paving 266 18.8 Kerbs, edgings and verges 267 18.9 Drainage 239 18.10 On-Carriageway Drainage 269 18.11 Off-Carriageway Drainage 270 18.12 Access Controls 272 18.13 Fencing and Hedgerows 273 18.14 Lighting 274 18.15 Maintenance - Introduction 275 18.16 Design with maintenance in mind 275 18.17 Maintenance Responsibilities 276 18.18 Maintenance Tasks 276 18.19 Bridges and other structures 279 18.20 Winter Maintenance 279 18.21 Highway Enforcement and Custodianship 280
Chapter 19: Cycle and Pedestrian Traffic at Streetworks and Construction Sites 282 19.1 Maintaining Active Travel Routes at Streetworks 282 19.2 Issues for Users 283 19.3 Principles for Managing Active Travel at Streetworks 284 19.4 Traffic Lane Widths at Roadworks 286 19.5 Temporary Speed Limits 287
Chapter 20: Monitoring and Evaluation 288 20.1 Introduction 288 20.2 Why Monitor and Evaluate? 288 20.3 How to approach data gathering 289 20.4 Data gathering tools 290 20.5 Recommended Approach 292 20.6 Analysing the data 296 20.7 Output 297
Glossary 298
9 Consultation Draft 2020 PART 1: Appendices A Powers and Duties created by the Active Travel (Wales) Act 2013 299 B Direction Designating Localities under the Active Travel Act 303 C Example Map of Local Walking and Cycling Routes 305 D Engagement and Consultation Report 306 E Example Active Travel Network Map 312 F Annual and Triennial Reporting Templates 316
PART 2: Appendices G Design Elements (DEs) 320 H Walking Route Audit Tool 432 I Cycling Route Audit Tool 433 J Legal Procedures 434 K Traffic Signs and Markings 438 L Network Planning Background 452 M Example Prioritisation 457
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Chapter 1: Introduction
1.1.1 Active travel is a term used to describe walking and cycling for purposeful journeys. Whilst walking and cycling are in themselves healthy activities that are to be encouraged, it is when they displace car journeys that they deliver significant benefits for the health and well-being ofales W – increasing levels of active travel contributes to the achievement of all seven of Wales’ Well-being Goals. It was to reap these benefits that the National Assembly for Wales passed the Active Travel Act into legislation in 2013. The Act had the aim of making “walking and cycling the most natural and normal way of getting about”. When compared with many other European countries, levels of active travel in Wales are low. The provisions of the Act therefore do not, primarily, cater for existing active travellers. Rather, they put in place the conditions that will allow many more people whose current mode of travel is the car to switch to the more sustainable modes for shorter journeys and facilitate access to public transport as part of longer distance journeys.
1.1.2 The main barrier to more people taking up active travel is the perception of danger from motorised transport. Overcoming that perception is key to the success of the Act. Unless people can be persuaded that their journey - the entire journey - can be made safely by active travel, they will continue to use their cars. The number of active journeys people will make will depend on how comprehensive the network of safe routes is and how well the routes connect with each other.
1.1.3 The Act requires local authorities in Wales to produce maps of active travel networks that set out plans for these networks and to deliver year on year improvements in active travel routes and facilities. These routes are to be coherent, direct, safe, comfortable and attractive. As well as creating the infrastructure the Act includes provision for making people aware of the available and planned routes through the publication of the Maps and for the promotion of active travel as a means of transport. It requires highways authorities in Wales to make enhancements to routes and facilities for pedestrians and cyclists in all new road schemes and to have regard to the needs of walkers and cyclists in a range of other highway authority functions. The full text of the Act is available at:
www.legislation.gov.uk/anaw/2013/7/contents/enacted
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1.1.4 This edition of the Guidance has incorporated the Existing Routes Map and the Integrated Network Map, set out in the Act, into the new Active Travel Network Map (ATNM). See 5.5 for details.
1.1.5 This guidance is published by the Welsh Ministers under sections 3(4), 4(5), 5(2) and 7(2) of the Act. For ease of reference, throughout this document it will be known as Part 1: Delivery or ‘this guidance’.
1.1.6 Local authorities are required to have regard to the guidance when exercising the functions to which the guidance relates. All references within the guidance to local authorities are to be taken as references to county and county borough councils. The duties under the Act are placed on the local authority generally, rather than a specific part of the local authority. This guidance is therefore for all parts of the local authority, not just for the local authority in its capacity as the local highway authority. Part 1: Delivery is one part of the guidance issued under the Act. The other part is Part 2: Planning and Design, which provides essential, detailed, technical advice on how the infrastructure should be planned and designed. This first part of the guidance provides signposts to relevant chapters of both parts of the guidance as an aid for the various local authority personnel who will be involved in the implementation of the Act but who do not require all Part 2’s technical information on highway design. All personnel involved in highway planning and design will need to be familiar with both parts, but particularly with Part 2.
1.1.7 The effective implementation of a local authority’s duties under the Act will require effective collaboration amongst departments and a clear understanding of the responsibilities of each department. The chart below sets out which parts of the guidance are most relevant to which department. Given that the names local authorities give to the department carrying out a particular function varies from authority to authority it has not been possible to refer to specific departmental titles, the chart instead refers to generic functions. This chart also applies to Welsh Government.
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Chapter/Paragraph in Function Area of Relevance Part 1 Part 2
Corporate Equalities 2.6 Services and Estate The duties on local Management authorities 3 Definitions 4 Publishing the maps 5.12 Consultation/Engagement 6 Promoting Active Travel 7 Stakeholder Participation, 11 Engagement and Consultation 12.2 Inclusive Design 13.8 Prioritising and Delivering the Active Travel Schemes 19 Monitoring
Education Children & Young People 2.6.9 Learner Travel Measure 2.6.1 Consultation/Engagement 6.1.6 – 7 Promoting Active Travel 7 Active Travel Map Consultation 11.4
Youth Children & Young People 2.6.9 Services Consultation/Engagement 6.1.6 Promoting Active Travel 7
Social Equalities 2.6 Services Consultation/Engagement 6.1.6
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Chapter/Paragraph in Function Area of Relevance Part 1 Part 2
Planning, Planning Policy Wales 2.5 Growth and Regeneration Planning status of the Active Travel Network Map 5.8 Funding the network – S106 5.16.4 – 6 and CIL New Developments 10.6 Network Planning 13.4 Integration with Public Transport 15 Street Furniture and Cycle Parking 16 Construction, Maintenance and Management 18
Development Environment Act 2.3 Control and Conservation Planning Policy Wales 2. Planning status of the Active Travel Network Map 5.8 Funding the network – S106 and CIL 5.16.4 - 7 New Developments 10.6 User Needs 12 Street Furniture and Cycle Parking 16 Construction, Maintenance and Management 18
Environmental User Needs 12 Health
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Chapter/Paragraph in Function Area of Relevance Part 1 Part 2
Highways and Provision for Walkers and Transportation Cyclists when Changes are – all of the Made to the Highway 9 guidance is relevant. Staff User Needs 12 not directly Network Planning 13 involved in active travel Designing for Walking and 14 need to be Cycling particularly Integration with Public aware of the Transport 15 sections listed here: Creating, Improving and Managing Highways 17 Cycle and Pedestrian Traffic at Street works and Construction Sites 19
Public Health Promoting Active Travel 7 Prioritising and Delivering the Active Travel Schemes 13.8
Recreation Publishing the Map 5.12.9-11 and Tourism Promoting Active Travel 7 General provisions for traffic regulation and traffic regulation in special cases 9.5 Integration with Public Transport 15 Signs for Pedestrians 16.4 Signs for Cyclists 16.9
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1.1.8 Parts of Part 1: Delivery will be of relevance to the Welsh Ministers, whoalso have duties under the Act, and other delivery partners.
1.1.9 This guidance will be reviewed and updated based upon feedback from local authorities of their experience of fulfilling their duties under theAct and the usefulness of this guidance in supporting them. Comments and views on this guidance can be sent to:
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Chapter 2: Policy and Legislative Context
2.1. Introduction 2.1.1 This chapter outlines the various policies and legislation that impact on the enabling and promotion of active travel in Wales. Advice about how other existing duties can be met whilst discharging duties under the Act is set out in relevant chapters of the guidance.
2.2. Well-being of Future Generations Act 2.2.1 In 2015 Wales passed the Well-being of Future Generations Act to enshrine Wales’ commitment to sustainable development in law. The Act applies to all devolved public bodies in Wales including Welsh Government and all local authorities. The Act put in place seven national goals and five ways of working.
2.2.2 Under the Act, public bodies now have a duty to use sustainable development to shape everything they do, how it is done, and how it is communicated (via reporting), to show how they are contributing to the achievement of the well-being goals.
Figure 2.1: The Goals of the Well-being of Future Generations Act
Globally Responsible Prosperous
Vibrant Culture Resilient and Thriving Welsh Language
Healthier Cohesive Communities
More Equal
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2.2.3 Active travel can contribute to all the goals of the Well-being of Future Generations Act. For example:
▪ It contributes to prosperity by reducing congestion and improving the health of the workforce ▪ It improves resilience by reducing carbon emissions and other harmful pollutants ▪ It makes Wales healthier by encouraging physical activity which helps prevent diseases such as diabetes type 2. Displacing car journeys also has significant impacts on air quality. ▪ Active travel contributes to a more equal Wales by providing an affordable alternative to motorised travel. Almost a quarter of Welsh households do not have access to a car. ▪ Increased levels of walking and cycling lead to a greater level of social interaction creating greater cohesion in our communities. ▪ By providing an affordable alternative form of transport, active travel can allow many more people access to cultural activities and centres. ▪ As the lowest carbon form of transport, active travel helps Wales meet its global obligations in reducing climate change.
Figure 2.2: The Five Ways of Working