Cornwall Rural
Highways Best
Practice
April 2013
Cornwall Rural Highways Best Practice
1.0 Introduction 3 1.1 Why have a rural highways best practice? 3 1.2 Aims of the best practice 4 1.3 How the practice was developed 4 1.4 Links to other policies and guidance 4 1.5 SWOT analysis 6
2.0 Scope 7 2.1 What is a Rural Road? 7 2.2 Geographical scope 7 2.3 Who will use the best practice? 7 2.4 Consultation 8
3.0 Principles of the best practice 8 3.1 Key Principles 8 3.2 Other principles 8 3.3 Character Areas 8 3.3.1 National Character Areas 9 3.3.2 Landscape Character Assessment (LCA) 9 3.3.3 Cornwall Landscape Character Best Practice Guide 9 3.4 Active Travel in Rural areas 9
4.0 Best Practice Guidance 9 4.1 Carriageways 9 4.1.1 Surfacing 9 4.1.2 Road Markings 9 4.2 Footways 9 4.3 Verge 9 4.4 Other land used for highway drainage 9 4.5 Highway furniture 9 4.5.1 Bollards 9 4.5.2 Bus shelters and stops 9 4.5.3 Hazard marker posts 9 4.5.4 Ironwork 9 4.5.5 Posts 9 4.5.6 Railings 9 4.5.7 Signs 9 4.5.8 Street lighting 9 4.5.9 Surface water channels and drainage 9 4.6 Kerbing 9 4.7 Ancillary features such as water troughs, mile stones and crosses 9 4.8 Crossings 9 4.8.1 Bridges 9 4.8.2 Fords 9 4.9 Boundary hedges, walls, fencing and gates 9 4.9.1 Hedging and Cornish hedges 9 4.9.2 Walls 9 4.9.3 Fencing and gates 9 4.10 Junctions and roundabouts 9 4.11 Lay-bys, picnic areas and passing places 9 4.12 Cattle grids 9 4.13 Designation 9 4.14 Trees 9 4.15 Injurious weeds 9 4.16 Geology 9 4.17 Waste receptacles 9
5.0 Implementation and Quality Assurance 9
Page 2 of 45 1.0 Introduction
The rural road network is one of the defining elements of the Cornish landscape with narrow winding lanes, often deeply cut, bounded by Cornish hedges of differing pattern and geology. Rights of Way criss-cross farmland and moorland, enabling access to the countryside and coast on foot, by bicycle or on horseback. Traditional infrastructure associated with the road and Rights of Way network like the iconic fingerposts and milestones, stone stiles and historic pathways are part of the rich history of the landscape.
The rural road network is also a vital asset to the many small communities and businesses spread across Cornwall providing vital connectivity, accessibility and social cohesion.
The high quality rural environment, within which these highways are set, is one of the reasons that millions of visitors come to Cornwall each year. Therefore, high quality management of these highways and their associated historic assets is vital to maintaining and enhancing the landscape quality of Cornwall.
1.1 Why have a rural highways best practice? This best practice has been developed as a supporting document to the 20 year Local Transport Plan, Connecting Cornwall: 2030. Part of the vision of Connecting Cornwall is to ‘respect and enhance our beautiful natural, historic and built surroundings through the way in which we travel and deliver transport’.
The way transport infrastructure is designed, maintained, managed, delivered, and controlled through the planning system, can all have an impact upon the surrounding environment.
Connecting Cornwall therefore set out a commitment to look to ' develop a rural roads and rights of way protocol with environmental partners that incorporates design guidance for roads and footpaths within the AONB and other areas of landscape and heritage value' .
The transport and access chapter in the Cornwall Area of Outstanding Natural Beauty (AONB) Management Plan includes the following:
Vision: Road and transport schemes and associated infrastructure (road lighting, signage etc) which respect and enhance the landscape character of the AONB while avoiding clutter and minimising light, air and noise pollution;
Policy TA5: Encourage the design of transport and Rights of Way infrastructure that conserves and where possible enhances the historic character, biodiversity and geodiversity of the AONB and support the proactive de-cluttering of associated signage, lighting and furniture;
Page 3 of 45 Action A/TA4: Produce a rural roads and rights of way protocol, incorporating design guidance for roads and Rights of Way infrastructure within the AONB integrated with the Cornwall Access Strategy and the LTP3.
1.2 Aims of the best practice 1. To provide specific guidance in order to protect and enhance the character of Cornwall’s rural highways, for all activities which will result in physical impact upon the rural highway network, including: Policy development; Scheme designs; Highways asset management; Highway maintenance and Highway development control. 2. To provide a practical guide to all those working on the rural highway network in support of the objectives of Connecting Cornwall:2030. 3. To provide best practice guidance in relation to: Signage, materials, vegetation and landscaping, lining, lighting, shape, form, colour, scale, layout, speed, access, parking, walking, cycling and horseriding, safety, crime reduction, traffic management, accessibility, noise reduction, protection of wildlife sites and heritage assets, on the rural highway network.
1.3 How the practice was developed This best practice was developed by a working group comprising officers from Strategic Transport Planning, Infrastructure Asset Management, Highway Network Management, Cormac and the AONB Unit. The draft best practice was consulted upon between August 2012 and February 2013 by a range of stakeholders (see full list at Appendix 1), amended and then approved by the Portfolio holder for Transport, Highways and Environment (Delivery) in April 2013. The best practice has undergone both Equality Impact and Health Impact Assessments.
1.4 Links to other policies and guidance This best practice will be implemented through a number of operational policies and guidance including: o Cornwall Design Guide – an emerging supplementary planning document to the Core Strategy providing design guidance for all new development in Cornwall including many transport requirements. o Traffic engineering manuals – guidance for traffic engineers containing policy and standards for implementing traffic schemes. Manuals relevant to this best practice include guidance on: signage, structures, street lighting, speed management, casualty reduction, the passive safety report, lorry management, buses and parking. o Highway Maintenance Manual, Structures Maintenance Manual and TWE Technology Maintenance Manual - the Council's service standards for maintenance of transport assets which specify the standards of the service to be expected and identifies where future developments of the service are required.
Page 4 of 45 o Infrastructure Asset Management Strategy which includes how the Council manages its transportation infrastructure. o Development Layout Design which contains general design considerations for developers for adoptable highways.
The following guidance has been considered in the development of the above policies and this best practice: o Manual for Streets and Manual for Streets 2 o Cornwall AONB Management Plan - This is an adopted Cornwall Council plan. Refer to strategic chapter on Transport and access and local section relevant to individual schemes in order to understand how rural highways works can better respect local character. http://www.cornwall-aonb.gov.uk/ o The Traffic Signs (Amendment) Regulations and General Directions 2011 o Signing the Way, traffic signs policy review, 2011 o Well-maintained highways - Code of Practice, 2005 (updated 2012) o Management of Highway Structures – Code of Practice, 2005 o Well-lit highways – Code of Practice, 2004 o Reducing Traffic sign clutter, TRL, 2010 o Traffic in Villages: Safety and civility for rural roads, Hamilton- Baillie associates/Dorset AONB, 2012 o Clutter Busting – Less is More. An investigation of and recommendations for reducing the visual intrusion of traffic signs, Alan Baxter, 2010 o Design Manual for Roads and Bridges, Highways Agency o Specification for Highway Works, Highways Agency o Streets for All: South West, English Heritage, 2006 o Various local authority rural roads/de-cluttering guidance and policies
Page 5 of 45 1.5 SWOT analysis Strengths Weaknesses o Some current good practice o Intervention resulting in a already happening e.g. minimal urban appearance in some intervention which enhances the villages and areas rural character o Financial commitment doesn’t o Community involvement in some match current aspirations highway asset management e.g. (maintenance budgets) Roseland historic finger post pilot o Broken or lack of finger posts project impacting on the character of areas. o Lack of joined up walking and cycling routes in rural areas.
Opportunities Threats o Match funding to improve base o No future funding to replace specification damaged heritage assets like o Localism agenda – opportunity to for like. identify improvements needed o No future funding to add with stakeholders and to permit value to improve upon local councils to undertake some project specifications. elements of rural maintenance o Failure to follow best practice o minimal intervention and the through lack of awareness, presumption against signage will resources or finance save money (no capital and o No corporate lead to ensure reduced or no long term consistent sympathetic maintenance burden, plus scrap approach metal value of removed signs) o No single point of contact to o encouraging parishes to take on define what constitutes best refurbishment and responsibility practice or poor practice for heritage assets, reduces CC’s o Rural roads best practice is responsibilities, helps engender over-ridden by other Council local pride and parishes can do policies the work to a higher standard o Potential conflict between and much more cost effectively improving cycling routes in than the local authority. rural areas and aspiration to o identifying opportunities with keep signage and lining to a stakeholders - particularly minimum. through the neighbourhood o Potential conflict between planning process reviewing rural speed limits o Council’s Green Infrastructure and aspiration to keep strategy signage to a minimum. o the attractiveness of rural highways can be a reason for people to take more exercise especially leisure cycling and walking.
Page 6 of 45 2.0 Scope
2.1 What is a Rural Road? Rural Roads are all roads outside of a built environment with settlement populations greater than 1000 permanent residents. It is estimated that 77% of Cornwall’s roads are rural.
The road hierarchy as defined in the Highway Maintenance Plan will be used to determine the level of intervention required on each road type. There is likely to be more opportunity for the rural roads principles on roads further down the hierarchy.
There are many smaller hamlets and villages with populations of less than 1000 residents. Most of these are subject to a 30mph speed limit and as such should be considered as rural populated areas. It is recognised that different approaches will be required for populated and unpopulated rural areas.
In rural populated areas the rural roads best practice should be considered. However, application of these practices should only be where appropriate to the amenity of the area. It must be acknowledged that urbanisation may reinforce the recognition of a 30mph speed limit and, thus, assist with traffic calming.
The local authority has a duty to meet its statutory obligations in relation to safety and maintaining the public highway on all road types. During Without adequate funding, it is acknowledged that it may not be possible to implement all aspects of this best practice. Some of the measures contained within this document e.g. reducing signage and removing (or not remarking) white lines may help minimise demand on the highways maintenance budget in the long term.
2.2 Geographical scope Whilst this best practice was initially intended for roads and rights of way within the AONB, it is has been recognised that there is no clear boundary between protected and unprotected landscapes in Cornwall, and that the high quality principles relevant to the AONB should be adopted for the whole of Cornwall. Therefore, this best practice will apply to all roads defined as rural within Cornwall but initial trials will focus on smaller geographical areas within the AONB. It is the intention that future iterations of the best practice will include footpaths and other rights of way.
2.3 Who will use the best practice? The best practice is primarily intended for Cornwall Council and its consultants, developers and utility companies working on rural roads. However it will also be of relevance to those working with the Council on
Page 7 of 45 highway schemes including parish councils, the police, local communities and amenity groups.
2.4 Consultation We will continue to consult on amendments to the highway that require or affect traffic regulation orders. We will not routinely consult on maintenance activities that may result in changes to existing highway infrastructure.
3.0 Principles of the best practice
3.1 Key Principles The following principles for the best practice have been informed by the objectives, policies and proposals of Connecting Cornwall: 2030: 1. To design and maintain rural highways so that they respect and enhance the character, appearance and local distinctiveness of rural areas, whilst balancing the economical use of resources against the need to preserve character. 2. To minimise the use of natural resources and minimise waste in the planning, designing and delivery of rural transport infrastructure. 3. To make the most of opportunities to protect and improve habitats for a variety of wildlife and to protect and enhance historic features, landscapes and townscapes
3.2 Other principles The best practice will also support the following principles of Connecting Cornwall: 2030: 1. To ensure that rural highway design considers all users including walkers, cyclists, horse riders, freight, agricultural vehicles, public transport and cars. 2. To ensure that accessibility considerations are taken into account when carrying out our responsibilities for planning, delivering and managing the highways, cycle and footway networks. 3. To maintain our roads in terms of safety, sustainability and serviceability. 4. To improve road safety for everyone in Cornwall and reduce the number of road related fatalities and casualties. 5. To protect people and the local environment from exposure to adverse traffic noise or poor air quality in relation to transport infrastructure.
3.3 Character Areas This best practice embeds in Cornwall’s highway maintenance plans and policy the principle of conserving and enhancing the special and varying landscape character of Cornwall’s rural highway network.
Page 8 of 45 Decisions on the management of our rural highway network will pay proper regard to conserving and enhancing its existing and varying landscape character.
Landscape character is defined as ‘a distinct, recognisable and consistent pattern of elements, be it natural (soil, landform, etc) and/or human factors that make one landscape different from another’.
By understanding the varying landscape character of places that include rural highways we can ensure that rural highway maintenance operations and future rural highway development are in character with the local rural landscape they are part of.
3.3.1 National Character Areas England has been divided into areas with similar landscape character, which are called National Character Areas (NCAs); In Cornwall the NCAs correspond with areas of differing geology as this influences landform and soils which in turn influence vegetation, agricultural and other land uses along with locally characteristic stone used for example in hedges, buildings and structures. The following link takes you to the seven NCAs covering Cornwall. http://www.naturalengland.org.uk/ourwork/landscape/englands/character /areas/default.aspx
3.3.2 Landscape Character Assessment (LCA) LCA uses statistical analysis and application of structured landscape assessment techniques to provide more detailed descriptions and analysis of Landscape character at a local level within the national framework of National Character Areas.
The 2007 Cornwall and Isles of Scilly Landscape Assessment was commissioned and adopted by Cornwall Council and provides an evidence base for landscape policies and strategies for Cornwall including this Rural Highways best practice. These are the main Character areas that should be referred to in order to understand the character of the local landscape that a rural highway passes through, is part of and should fit into in the way it is designed or maintained.
Page 9 of 45
Cornwall's unique landscapes, and rich diversity of heritage and natural assets are described in a series of 40 Character Areas and guidance is provided that can be of assistance in maintaining the special character of our Rural Highways network.
Follow this link to the interactive landscape character assessment map and web site www.cornwall.gov.uk/cornwall_landscape
3.3.3 Cornwall Landscape Character Best Practice Guide This Cornwall Council document is available online via the following link: Cornwall Landscape Character Best Practice Guide .
The document introduces the important topic of landscape character assessment and has been written to help developers, parish and town councils and members of the public understand how to conserve Cornwall’s landscape character and retain the local distinctiveness upon which Cornwall prides itself. This is relevant to Highway design and maintenance engineers regarding rural highway works (as well as many other types of development). It is about understanding what landscape character is, so you can then make sure Highway and other development respects and enhances this existing character to retain the unique local distinctiveness and sense of place only to be found in Cornwall.
3.4 Active Travel in Rural areas
Cornwall’s countryside is already popular with walkers and cyclists and the Connecting Cornwall: 2030 strategy seeks to make active travel (walking and cycling) more attractive in rural areas. Much of this active travel uses the extensive off-road public rights of way network but some of the strategic walking and cycling network are hosted on the road network and many off-road routes also link onto roads. There is also a need for better walking and cycling routes within and between rural communities and linked into the urban centres which may make use of existing roads. Measures to encourage walking and cycling on rural roads can include:
Page 10 of 45 o Waymarking, signage and promotional material o Provision of dedicated footways and cycle paths/lanes o Safe and convenient road crossings o Stopping up Orders on under utilised parts of the highway network to vehicles where suitable alternatives exist o Speed limits that make roads less threatening to vulnerable road users. In some parts of the country ‘quiet lanes’ have been introduced. o Maintenance to ensure walking and cycling routes are not blocked by overgrown vegetation and that road surfaces are in an appropriate condition. o Improved cycle parking and integration on strategic bus routes, at rail stations and within rural settlements.
In implementing this guidance, encouraging more active travel on rural roads should be considered alongside preserving the character of areas.
Page 11 of 45 4.0 Best Practice Guidance The basic premise will be that works should manage change to the environment and preserve and enhance its character. When designing a scheme or undertaking maintenance works common sense should prevail. The following represents a framework, a non-exhaustive list of guiding principles.
Further detailed guidance on each of the features listed is available on the Transport and Streets section of the Cornwall Council website.
The highway typically includes:
4.1 Carriageway : That area specifically designed to carry road vehicles. 4.2 Footway : That area designed for pedestrian usage. 4.3 Verge: Un-metalled area used as pedestrian refuge, for equine use etc normally grassed 4.4 Other land used for highway drainage 4.5 Highway furniture that resides on or in the highway e.g. ironwork, signing, lighting, fencing (pedestrian and safety) and the like 4.6 Kerbing 4.7 Ancillary features such as water troughs, mile stones, crosses etc 4.8 Crossings : Bridges and fords 4.9 Boundary walls, hedges and fencing and gates 4.10 Junctions and roundabouts 4.11 Lay-bys, picnic areas and passing places 4.12 Cattle grids
Other considerations
4.13 Designation . Where the highway falls within one of the following areas: a. AONB b. SSSI c. Conservation areas d. World Heritage site e. Where elements are listed or scheduled
4.14 Trees 4.15 Injurious weeds 4.16 Geology 4.17 Waste receptacles
Page 12 of 45 4.1 Carriageways
4.1.1 Surfacing The surfacing of a road can have a considerable impact on rural character and on people’s ability to enjoy the peace of the countryside. The noise of ever increasing traffic levels can carry great distances in open landscapes. Different types of surfacing materials exhibit differing noise characteristics. The appropriate choice of surfacing materials can reduce noise levels by up to 10 decibels (as can slowing the speed of traffic). Reduced road noise can give rise to increased traffic speeds due to improved driver comfort and the associated perception of velocity.
Careful consideration must be given to the type, colour and source of surfacing materials.
The use of coloured surfacing materials to demarcate cycle lanes, parking bays, walkways or village gateway entrances is commonplace and has been shown to have safety benefits. However, highly visible colours have an adverse effect upon the natural beauty of the rural landscape and should be avoided. Aggregates of muted but contrasting colours can be very effective and reflect local character.
Where sections of road are to be treated with a high friction surfacing material to improve the skid resistance of the road, a muted coloured material should be considered in preference to the buff. It must be recognised that weathering of materials will change their appearance. Longevity of surface appearance is more important than the newly laid colour.
Carriageway resurfacing and surface dressing material should be sourced from local quarries wherever possible. Secondary or recycled aggregates should be used where appropriate.
Any metalled surface could have historic significance. Where non- standard (modern) materials form part of the highway they should be considered for special designation and protection. Where traditional road materials exist, e.g. cobbles, they should be retained and maintained as far as possible. Further guidance on heritage features is provided in section 4.7.
Best Practice Surfacing and surface dressing materials to be sourced locally and to be appropriate to the local area in texture and colour. Unless there is an overriding safety concern, the use of coloured road surfaces will be discouraged. Aggregates of muted but contrasting colours can be very effective and reflect local character. High friction surfacing will be grey unless a clear safety benefit for another colour is identified. Where traditional construction materials are present they should be protected and retained as far as possible; both in terms of those forming
Page 13 of 45 part of the surface and those exposed during works. Where it is not possible to return traditional materials to their original setting they should be retained and stored for future reuse. Conservation officers should be consulted where this may result in a patched or not contiguous appearance. Where there is high use by non-motorised users consideration should be given to these users in the choice of surfacing materials.
4.1.2 Road Markings Road markings are placed on the surface of the road for the control, warning, guidance or information of road users. Some markings may be used to supplement upright signs, such as 30 mph speed limit roundels; others are intended to be used alone. Speed limit roundels painted on the carriageway can have an urbanising effect upon rural roads but are justified if the impact of upright signs is insufficient due to the topography.
Road markings are relatively slippery compared to the surface on which they are marked. Motorcycle safety must be considered when placing markings.
A reduction in the amount of white lines can create uncertainty for drivers, encouraging them to reduce their speed. Over use of road markings has a detrimental effect upon the area’s character and visual amenity. Whilst there is a legal requirement to make certain markings (e.g. yellow lines), the use of narrow markings in subtle colours is preferable e.g. environment (primrose) yellow 50mm parking restriction lines.
Best Practice The use of edge of carriageway lines will be discouraged unless their inclusion is considered necessary on the grounds of highway safety. Lining should always be reviewed following resurfacing/ surface dressing, consideration should be given to whether the lining, including ‘Slow’ markings etc, can be omitted. Waiting restrictions will be 50mm wide. ‘At any time’ signs associated with double yellow lines are no longer legally required and should be removed. The inclusion of speed limit roundels and other symbols painted on the carriageway must consider the impact on the character and visual amenity of the landscape and be balanced against the visual impact of other types of restriction, and the risk of reduced skid resistance to motorcyclists of paint on the road surface.
4.2 Footways Footway surfaces should be given similar considerations to those for carriageways.
Page 14 of 45 Sometimes it may be better to re-site a footway away from the roadside altogether, improving the route for all types of user. Local consultation should be undertaken in the development of new roadside routes, to ensure that they will meet local need and be sited appropriately.
Segregated routes can be perceived as increasing a risk for personal safety and vulnerability to attack. This should be considered in new routes particularly with respect to vegetative growth and maintenance demands.
Best Practice The construction of new footways and cycle ways, and improvements to existing routes, will aim to respect the character and natural beauty of the landscapes through which they pass. Natural, local materials should be used in rural landscapes unless road safety or maintenance considerations determine otherwise. The number of signs will be kept to an absolute minimum. Surface markings will only be used where there is a quantifiable safety concern. On major roads in particular, grass verges should be retained as a refuge for horse riders and walkers, where no pedestrian facility currently exists. Wherever beneficial road-space should be allocated to cyclists and pedestrians, provided this can be accommodated within the existing highway and to appropriate design standards. In some locations traffic free sections of path could be shared between walkers, cyclists and horse riders, providing they are expected to be used responsibly.
4.3 Verge The highway limits in rural areas are generally up to adjacent boundary hedges, fences or walls. Therefore, the verge is usually a part of the highway; whilst the hedge, fence or wall is generally the responsibility of the adjacent landowner, other than where these are in the ownership of the Highway Authority. Verges serve a number of functions, not least as safe refuge for pedestrians and horse riders. They are also important as wildlife sites, visibility splays (especially on corners and junctions), for drainage and for the location of utility infrastructure.
The timing of cuts is generally determined by the maintenance cycle of cutting, which starts on the higher maintenance roads and then progresses to the lower maintenance categories. In a normal growing season the rural verge cutting commences with major road visibility areas during mid May.
There are a number of circumstances when grass cutting standards can be modified. In particular, where wild flowers, such as orchids, should be left uncut until they have seeded; where the spread of injurious weeds needs to be avoided (e.g. Japanese Knotweed) and or there are protected animals present (refer to Wildlife and Countryside Act 1981 for details).
Page 15 of 45 Earthworks (in verges or in creating verges) in rural Highway corridors should carefully be considered before undertaken. Ideally, these works will be avoided where possible.
The profile of earthworks should tie in with and match the character of the landscape in the immediate area. Angular, engineered profiles are rarely appropriate. Smooth flowing contours with varying gradients are, in most circumstances, more appropriate aesthetically, however, maintenance requirements and highway safety should drive final designs.
Reuse of top-soils is essential as this can determine the type of vegetation that will establish; both in the nature of the soil and presence of native seeds. Vegetation that matches the surroundings is most likely to help earthworks blend in with the character of their surroundings. Inversion of the soil on the site can be desirable to reduce nutrition and to encourage a wider range of species
Best Practice Conservation standards should be agreed between the relevant conservation bodies and the highway authorities, identifying conservation priorities and generic management prescriptions for rural verges within each administrative area. For the principal roads, specific management prescriptions should be written into verge / highway maintenance programmes, with their implementation and effectiveness monitored by the Highway Authority. Regular surveys should be undertaken of the area’s verges to identify those with high wildlife, visual or geological value. These should be classified as “special”. Special verges should be plotted on GIS to allow easier sharing of data. Specific management prescriptions should be written into verge / highway maintenance programmes and their implementation and effectiveness monitored for each special verge. Special verges will be denoted by the placing of markers at each end of the site. The planting of ornamental species on rural verges is to be discouraged as they may compete with indigenous plants and detract from local landscape character. When works to verges are carried out, the use by walkers and horse riders should be considered and included within the design / works. Reinstatement after excavations in verges should include appropriate making up with local topsoil and seeding to match the local environment. Measures should be considered to reduce parking on verges, particularly those identified as “special” (see hazard marker posts) During winter maintenance, all reasonable steps will be taken to avoid salt being applied to the verge Where suitable, meadow regeneration should be considered to reduce the need for cutting. Maintenance regimes should include inversion of topsoil where suitable to help reduce ongoing maintenance liabilities.
Page 16 of 45 4.4 Other land used for highway drainage Some verges are exceptionally wide and may be used to assist with highway drainage. Generally, these areas should be subject to the considerations of other verges. They may also be considered for planting with local species of local provenance to allow easy access for drainage clearance and achieve a low maintenance wildlife environment.
Best Practice Covered by verges The concentration of low level pollutants in ditches should be considered when operations involve materials being removed from site.
4.5 Highway furniture Highway furniture falls into two types; that placed for the benefit of the highway user and highway management; and that needed to access or support private, utility company and Highway Authority apparatus. These features are generally more abundant in urban or populated rural areas, thus, are associated with urbanisation.
Any of these features may be an historic asset and as such works involving the repair of historic highway structures and highway furniture, countryside access structures and the public realm should, wherever possible, use materials and design appropriate to the local historic character. Further information can be found in the report of the Local Authority Heritage Assets Single Issue Panel, 2007.
This includes (but not restricted to):
Item Description Bollards cast iron (simple and ornate inc. cannon), local stone (generally granite), concrete and plastics (including illuminated)
Bus shelters and varying types stops
Hazard marker horizontally striped, black and white, reflectorised, posts plastic bollard/post
Ironwork manhole covers, gullies, gratings, frames
Posts onto which signs are affixed
Railings to assist pedestrians (hand rails) or direct their movement (guard rails)
Signs all types (current and to old design standards) including finger posts and advertisement
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Street lighting lamps supported by columns or pole brackets
Surface water generally longitudinal features that assist surface channels and water to a water course or drainage system drainage
4.5.1 Bollards Historically, non-illuminated bollards have been installed to prevent vehicular damage to, and obstruction of, the highway. Most forms of material have been used; local granite, concrete, wood, cast iron, other metals and plastic. In some places cannons have been set on end in concrete; these rarities should be protected. When reviewing bollards it is important that they are considered not only from the historical use of materials but also regarding their siting and intended use.
Bollards should only be used where there is a proven necessity to protect the highway asset or to prevent obstruction of private accesses (where absolutely necessary). Choice of material should reflect the environment, likelihood of being damaged and their exact purpose. The use of reflectors should be resisted where possible. However, this must be considered against the fact that bollards are an obstruction and may not be visible at night in an unlit rural environment. This is a particular issue for wide, overhanging agricultural plant.
The use of illuminated bollards in the rural setting should be avoided. However, they can be a key element of certain junction and gateway layouts.
Best Practice Bollards should only be installed where absolutely necessary and there is proven need to protect the highway or private accesses where other solutions are not viable. Bollards should be of a material type that best fits their environment and use. Natural materials should be given preference except where matching to those of historical interest. Reflectors (or reflective paints) should not be used as a matter of course.
4.5.2 Bus shelters and stops Cornwall Council has had a new style of shelter designed to provide a modern image for public transport in Cornwall. A range of bus shelters has been developed to suit the variety of locations and needs anticipated. This shelter will be the preferred design for all new bus shelters in Cornwall.
Page 18 of 45 Where an alternative design is requested, consultation will be required with Cornwall Council to agree a suitable structure, which in rural areas should comply with the principles of this best practice guide.
Guidance on advertising to be agreed following illegal advertising policy review.
Best Practice New bus shelters should ideally be selected from the range developed by Cornwall Council. Designs should be selected to reflect the local character of the area in consultation with Cornwall Council. Advertising on bus shelters in rural areas – to be agreed following wider decisions on advertising.
4.5.3 Hazard marker posts
Hazard marker posts are a valuable tool for alerting the travelling public of specific hazards within the highway corridor, particularly in the verge. They are designed to be eye catching and, as such, are visually obtrusive in the rural environment.
They are constructed of plastic and are relatively easily damaged when compared to metal or wooden posts. Thus, they have been widely used as a first choice in area where they are likely to be struck (e.g. where they delineate a steep bend).
They should be used sparingly and where they are the only viable solution to a specific safety concern such as passive safety for motorcyclists (delineating vanishing points). They should not be used to demark hazards that a highway user could reasonably expect to find but rather those that represent a real danger and cannot be identified by less obtrusive means. They should not be used to prevent parking or passing on the verge or the like.
Over use in the past has lead to proliferation of these marker posts. During routine maintenance the need for them should be reassessed and where possible they should be removed rather than maintained/replaced.
Best Practice Hazard marker posts will only be installed where necessary and justifiable on safety grounds. They should not be used to flag up hazards that can reasonably be expected in the rural environment. Where hazard marker posts have no clear highway safety value they should be removed rather than maintained. Hazard marker posts should not be used to protect the verge from over- riding or obstructive parking; other measures should be considered to address these issues.
Page 19 of 45 4.5.4 Ironwork
These features can be found across the surface of the highway. With trafficking they can become polished and a slip or trip hazard, thus, siting can be critical to highway safety. Historically, these were manufactured locally which generated distinctiveness in their appearance. Where viable these should preserved though it is recognised that in many instances they will have to be removed/replaced for safety reasons. Modern designs reflect the drive for improved functionality, ease of maintenance, availability of replacements, and some can be inset with surfacing materials; these offer good functionality while minimising their visual impact.
Noise of vehicles traversing over ironwork can have as much of a negative impact on the rural environment as it does in urban areas. This can be mitigated by ensuring that ironwork is not installed in wheel tracks (especially on bends) and by type of ironwork used.
Best Practice Ironwork manufactured locally and of local design should be retained or repaired where viable to do so. The visual impact of ironwork should be minimised by careful choice of location and type used. If needed and where possible ironwork should be confined to the back of verge. Consideration should be given to the use of high friction surfaces on ironwork in high stress environments to protect vulnerable road users
4.5.5 Posts
Across the county these can be found within the highway corridor in a multitude of sizes and materials. Highway safety takes precedence, thus, the choice of material and location should be given careful consideration. Whilst legislation dictates many of the parameters for signing and the associated posts they should not be installed unless required. The installation of posts should be the last option. Consideration should be given to other solutions first e.g. mounting to existing columns, buildings (with permission) etc.
Guidance on sign posts and background impact can be found in Chapter 1 of the Traffic Signs Manual 1982, amended 2004. Where posts are necessary the use of natural coloured and or renewable material (e.g. wood) posts should be considered. Metal posts and signs have a scrap value and are often stolen. Where possible the use of (unpainted) galvanised railings or other silvery finishes should be avoided.
The length of posts should be given careful consideration. Where there is the option to utilize shorter posts they should be used. This reduces the
Page 20 of 45 visual obtrusiveness of signs. However, in making the decision to use shorter posts consideration must be given to the impact of vegetative growth and increased maintenance demands. In tree bound areas shorter posts many lead to less requirement to trim limbs; the growth from Cornish hedges often obscures signs, the use of short posts in these areas may compound this issue.
Within Cornwall there are granite posts and the like. These are normally the property and responsibility of the land owner. However, their historical significance should not be ignored and where possible they should be retained and maintained.
In the narrow streets of Cornwall’s towns and village properties were often protected by ‘glinters’ (vertical structures, often of granite, designed to protect walls from vehicular damage). Though rare in the rural environment and not normally considered as part of the highway, if present these should be protected. Works undertaken around these features must be done in such as way as to ensure that they are not disturbed or covered.
Best Practice Posts will only be installed where necessary. Redundant posts will be removed. Consideration should be given to the colour, style, location and material of all new and replacement posts, with a view to the rural character of an area, without compromising highway safety. Where a sign and post have no quantifiable highway value they should be removed. Posts should not extend up above the tops of the signs; they should be cut to the correct length. Posts should not usually be placed on the outside of bends where they are likely to be struck due to loss of control.
4.5.6 Railings
Generally, pedestrian hand rails are installed to aid the ascent or descent of a steep gradient (slope or steps). Their value and use should be determined before they are provided or repaired. Where they are not of significant benefit consideration should be given to their removal.
In certain locations they may form an integral part of listed or important feature (bridge, retaining wall etc) adding to the distinctiveness of the structure. In certain locations they may be ‘listed’. The historical significance/designation of existing railings should be determined before maintaining, replacing or removing them.
Works on rural railings should sympathetically enhance their appearance, thus, use of coloured railings should be considered. Where possible the
Page 21 of 45 use of (unpainted) galvanised railings or other silvery finishes should be avoided.
Guard railings are used to guide and protect pedestrians. Their benefit must be considered against the relative risks of using the surrounding highway and the risk they may pose to a carriageway user in the even of an accident.
It is reasonable to assume that the use of guard railings is more acceptable in the populated rural environment.
Best Practice Pedestrian hand rails should only be provided where there is an identified need. Railings of local distinctiveness should be retained and repaired. Rails should be of subtle appearance from initial installation. Guard rails should only be installed and replaced where there are considerable safety benefits in doing so. Comparison should be made to the risks of using the surrounding highway – this is particularly important where pedestrians are required to walk in the carriageway.
4.5.7 Signs Whilst signage is an essential feature of the roadside environment, it can be an intrusive and urbanising element in the landscape. Placing a new sign into the countryside should be a last resort. That said, there are numerous signs of historical significance within the highway corridor and particularly within the rural setting e.g. finger post (esp. cast iron), place names signs etc. Though most of these will not satisfy current regulations, they should be protected, maintained, repaired and utilised according to their intended function.
Traffic signs regulation and guidance
The Traffic Signs Manual (1982 to 2004) gives clear guidance to local authorities about the use and placing of signs in the highway. It states that clear and efficient signing is an essential part of highway and traffic engineering; that a road with poor signing or with badly maintained signs is an unsatisfactory road. Signs must give road users their message clearly and at the correct time.
The types of signs and carriageway markings available for use are prescribed by regulations. Limiting the number of types of sign available assists in their quick recognition, as will uniformity of shape, colour and lettering for each type; also, it aids the courts in giving the same meaning to standard signs. Uniformity of signs requires uniformity in use to maintain road safety.
The signs for all purpose roads are based on the recommendations of the Report of the Traffic Signs Committee 1963. These signs are now
Page 22 of 45 prescribed under the Traffic Signs Regulations and General Directions 2002. Authorities may only use signs (including carriageway markings) of a size, colour and type prescribed or specially authorised by the Secretary of State.
The Traffic signs manual states that signs are used to control and guide traffic and to promote road safety. They should only be used where they can usefully serve these functions, for instance, over use of warning signs diminishes their effectiveness. The omission of a warning sign where were there is a real danger is not in the best interests of road users. Authorities are advised to follow the advice given in the manual closely.
If an authority wishes to diverge from the regulations it may do so with the express approval of the Department for Transport, which has issued guidance on the processes to be adhered to. Where guidance is not followed, highway authorities are encouraged to keep an auditable trail to demonstrate the decision/justification process used. The need to secure permission to use non-standard signage should not be a barrier to achieving the highest design standards in the protected landscapes given their national importance and the duty to conserve and enhance their character.
Road signs
Those signs relating to safety and direction are clearly beneficial and they are meant to be noticed, however, these can detract from the quality of the environment where their nature and scale is inappropriate to their setting. Back-plate colouring needs thought, yellow may be essential in a busy urban environment but is rarely needed in the open countryside. Though exceptions may include warning signs in heavily shaded areas or areas prone to fog or mist.
The use of solar-power panels and small wind turbines within the highway corridor should be avoided. They are obtrusive structures and damage the aesthetics of an area. When mounted on the same post, they can detract from the impact of the sign. They should only be deployed where there is an over-riding safety need.
The goals of reducing roadside clutter and avoiding an erosion of rural character should be seen alongside those of safety and utility. Route signage clutter audits should be undertaken in liaison with local stakeholders. A balance needs to be struck between decluttering signs and providing new signs to encourage more active travel, especially cycling on rural roads.
When installing new signs, use should be made of existing street furniture, such as lamp columns, where regulation or conditions permits.
Page 23 of 45 Sense of place
The opportunity can be taken to reinforce local distinctiveness and raise awareness of special areas or places by marking boundaries and entrances. Poorly designed or placed, they detract from the landscape character. Wherever possible, in order to minimize clutter, gateway signs should be grouped with other highway signing. However, this is governed by regulation under the Traffic Signs Regulations and General Directions 2002 (see above), and permission may be required from the Department for Transport for special arrangements or designs. Cornwall Council has produced guidance on the design and placing of community name signs (Traffic Engineering Manual – Direction Signs).
Brown tourist signs
Brown signs are provided to direct visitors to tourist destinations, which supports the local economy. A leaflet published by the Highways Agency sets out the rules and regulations associated with the provision of brown traffic signs (Highways Agency 2005). For most tourist destinations, signing is only appropriate within 2 or 3 miles of the attraction. Cornwall Council has published a formal policy and a guidance leaflet for the provision of traffic signs to tourist destinations, which can be found on the Council’s web site.
Illegal signs
Non-highway signage, principally advertising boards and banners, proliferate along rural roads in some locations. As a result they are becoming an increasingly intrusive feature of the countryside. The Council has power to take action under the Town and Country Planning Act and Highway Act. The Council is producing an internal guidance document which supports the principles contained herein.
Best Practice The guidance document produced by the Highways and Planning Authorities of Cornwall Council should be referred to when considering the issue of illegal signs. All signs will be located with a view to minimising the impact on the landscape and the rural character of the area, as well as with a view to safety and utility. Whenever a sign is scheduled for replacement, the genuine need for its retention is to be considered. Thought must be given to the amalgamation of signs into a single pole and/or signboard in some locations, to avoid a proliferation of individual structures (where this does not create an overly- large single structure). Opportunities to mount signs on existing structures should be explored with the owners. Signs are to be ‘back to back’ wherever possible, minimising the impact of the unsightly ‘back view’ of signs and reducing the number of posts used. The Council’s brown tourist signs policy is to be firmly applied and the proliferation of such signs avoided. Regular audits should be undertaken
Page 24 of 45 and where the original destination has ceased to operate/comply with policy/agreement, the signs removed. The lighting of signs is to be avoided except where regulations demand they be lit. There should be a presumption against the use of solar or wind powered signs. These structures have an urbanising affect on the landscape character. Signs and their posts are to be as small as practicable. Visually intrusive yellow-backed signs are to be avoided except where there is an established safety issue and they are the only viable solution. Traditional cast-iron and timber directional signs are to be maintained and retained. Consideration should be given to their reintroduction when current signs need replacing. New directional signs should be constructed in materials and a style that reflects the tradition used in each protected landscape whilst meeting regulatory requirements. ‘Sign rationalisation’ projects and ‘clutter audits’ should be undertaken to reduce sign numbers and/or posts. There should be a presumption against the use of illuminated signs for crossing points, pedestrian refuges and splitter islands When choosing signs and their associated posts, ensure passive safety measures are considered.
4.5.8 Street lighting Street lighting within rural settlements is considered to be an important safety feature. However, lighting schemes can have a detrimental effect upon the overall aesthetics, character and visual amenity of the rural landscape, both in day time (by the introduction of intrusive structures) and night time (by ‘light pollution’). Careful consideration must be given to the need for lighting in rural settings and the siting, arrangement, frequency, style, intensity and control of the light source.
Capital expenditure on street lighting installations is high; this is due mainly to the costs associated with the cabling and electricity supply infrastructure. With the advances made in lamp, gear and control system technologies the on going maintenance revenue costs are reducing. However, revenue expenditure will remain high with any old legacy equipment.
Street lighting is classified under the carbon emissions commitment directive (CRC). Under the Carbon Act 2008, there is a requirement for the Council to consider, report on and reduce energy consumption and carbon emissions. For this reason lighting needs careful assessment on a case-by-case basis; to this end, the Department of the Environment and the former Countryside Commission produced such guidance in 1997 (Lighting in the Countryside – Towards Good Practice).
Highly reflective signs are considered as the preferred alternative as they are less visually intrusive than illuminated signs.
Page 25 of 45
External lighting can have an adverse effect upon a wide variety of birds and animals, particularly nocturnal species such as bats, owls and dormice. These species have a high tolerance to visible red light but are sensitive to ultraviolet light.
The Cornwall Lighting Infrastructure Manual requires: o that optical full cut-off luminary units are used – this removes all light pollution above the horizontal, o that units installed are LED or white light compatible and all are on the Council’s central management system – so that diming and reductions in light output can be made on an individual lamp basis. o that to reduce the impact on the wildlife, the Environmental Zone guidance, detailed in ILP GNO1:2011, will be followed.
Bat behaviour, in response to light sources, is interpreted as predator avoidance. Bat’s eyes exploit very low light levels. In bright light bats become disorientated.
Three of the UK’s seventeen different bat species will not fly in directly illuminated areas. This means that by directly illuminating a bat roost or feeding route may be an offence under the Wildlife and Countryside Act (1981); it is illegal to disturb bats.
Luminaires with glass glazing are preferred. Glass filters UV, thus, reduces the adverse effects on bats. Lighting should be directed to where it is needed and light spillage avoided. Lighting columns should be as short as is possible, as light at a low level reduces the ecological impact. Lighting should be switched off during the night for a limited period to provide some dark periods. Roads in areas important for foraging bats should contain stretches left unlit to avoid isolation of bat colonies.
Additional information can be obtained on the interaction of lighting and bats from the Institution of Lighting Professionals (ILP).
Traditional light fittings add much to the local character of an area and reinforce the sense of local distinctiveness. They are a valuable element and as such should be retained, refurbished or replaced in the same style. Replacements should respect the local design and use authentic materials. Modern, poor imitations of these old styles should be avoided in preference for quality reproductions or current designs.
Best Practice Lighting will not be installed on roads outside settlement boundaries unless there is a proven and overriding safety reason which cannot be addressed by other means. Where considered necessary, the highway authority will consult with landscape managers during the design stage. The preferred option is to install high-reflective non-illuminated signs. The minimum acceptable lighting intensity should be specified for all lighting in protected landscapes (BS5489). Application of the Environmental Zone guidance detailed in ILP GNO1:2011
Page 26 of 45 Where lighting is installed, standards should have individual sensors; consideration should be given to using dimming lights that reduce intensity outside of busy periods; and opportunities should be sought to switch off lights between 12.30 am and 5.30 am.
4.5.9 Surface water channels and drainage The Council has a prescriptive right to drain roads onto adjoining land by way of drainage channels known as ‘easements’. These are often an opening through a Cornish hedge and are locally known as a “bolt holes”.
On steeper slopes, water running down the road edge can erode both the road surface and the adjoining hedge. Gullies or channels are often constructed to guide water but poor choice of materials can detract from the local landscape character. Traditionally, cobbled or granite setted channels were used and these should be retained where they exist or introduced, where appropriate (also see kerbing).
Best Practice Where appropriate, cobbled or setted channels should be used. Urban type systems such as kerbs / gullies or filter drains should be avoided unless the risk of flooding and erosion is sufficiently regular and extreme as to constitute a road safety hazard or threaten property. Concrete drainage channels at the side of roads should be avoided but where used should be the minimum width, as shod horses cannot gain a secure grip on concrete surfaces and they are visually intrusive. Ditches – In most cases ditches are the responsibility of the adjacent landowner. Designs for new works should favour the use of open ditches. Where space permits, the use of swales should be preferred to piped systems. The culverting of ditches or watercourses should be avoided if at all possible, though it may be beneficial on some species rich verges, where ditch maintenance may damage the flora. Where possible, catchpits and trapped gullies should be used to limit low level pollution. New drainage system should avoid direct discharge into water courses. Use of soakaways should be considered.
4.6 Kerbing Kerbing is often installed to delineate footways (raised), protect verges etc from over-riding and to deflect surface water into drainage systems (or prevent flooding).
Improvements to meet current design standards can have a detrimental impact upon the character and visual amenity of rural roads. The use of concrete kerbs along minor roads should be avoided as they have an urbanising effect upon the landscape character. Where they are considered necessary alternative solutions should be considered such as
Page 27 of 45 local stone kerbs or setts or angled ‘countryside’ kerbs. However, environmental costs must be considered, especially if traditional materials are no longer available locally.
Best Practice Raised kerbs should be avoided on rural roads as they bring an unnecessary urban character to the highway. Where kerbs are considered necessary on highway safety grounds, local materials and vernacular styles should be replicated wherever possible. Existing traditional materials should be retained and re-used in the same location wherever possible. Edge details should be protected during resurfacing works and should never be overlain so that they are no longer visible. Where works necessitate the removal of traditional materials they should always be retained and stored in the Highways depot for future use elsewhere in the locality.
4.7 Ancillary features such as water troughs, mile stones and crosses There are many historic, traditional or culturally significant features and monuments associated with the roadways. Some, identifiable, discreet structures such as direction stones, milestones, guidestones mile plates, parish boundary markers, prison stones and finger posts are accepted as belonging to the highway authority. Others, such as water pumps, water troughs and crosses are usually said to belong to the adjacent landowner. Old lamp posts will generally be a highway responsibility but may belong to the landowner or parish council.
Many features, such as Toll houses were once part of the highway, and although they remain a significant part of the historic character of the highway, are now quite separate in terms of ownership; management regimes should still recognise and protect the historic relationship of such features with the highway however. There is a need for an audit of the historic highway structures to clarify responsibility and map their locations.
Many of these features could be listed or scheduled as ancient monuments or stand within a conservation area, World Heritage site, AONB etc; statutory consent may be required for even the most minor of works, and in some cases work adjacent to the features may affect their setting. Local authority planning and conservation officers and, on some occasions, English Heritage, must therefore be contacted as part of the management and maintenance process.
Stone milestones or metal plates and parish boundary markers are a distinctive feature of Cornwall. A survey of the location and condition of them has been completed by the Milestone Society. Milestones are not always obvious features. They are particularly vulnerable to vehicular
Page 28 of 45 damage but can also be damaged during roadworks, other development and to highway maintenance such as verge trimming.
Roadside crosses are often nationally significant monuments, being either listed or scheduled as a part of our medieval heritage. Though usually more visible than milestones, crosses are also vulnerable to traffic and maintenance damage. Their setting is particularly important, as they are usually located in relatively isolated lanes and junctions.
Some old lamp posts have both historic and cultural significance. Some are relics of a bye-gone age and others are commemorative features linked, for example, to Royal events. Again, their setting is important and they are at risk when they can no longer function as street lighting.
Though no longer a formal part of the highway estate, toll houses and some other listed buildings are distinctive buildings and contribute significantly to the streetscape and sense of place. It is important that their traditional character and fabric is maintained. Their proximity to the highway means that they can be vulnerable to damage from vehicles. Sympathetic measures to protect them that are in keeping with their traditional highway setting should be considered.
Water pumps and troughs can be either simple structures or more elaborate with benefactor history (either inscribed or known in local folklore or other forms of record). They reflect the past use of the highway by animals, add character to the streetscape and are often listed. Their proximity to the highway means that they can be vulnerable to damage from vehicles.
Bench marks, normally cut into a wall or kerb, should not moved without first recording their level. They must be replaced at their original level after any works.
Best Practice Survey data of heritage features should be made available on the Streetworks Gazetteer so that they can be accessed by works promoters. Works involving the repair of historic highway structures and highway furniture, countryside access structures and the urban public realm will, wherever possible, use materials and design appropriate to the local historic character. The Council and partners should seek funds for the routine and emergency repairs to historic structures. Heritage Partnership Agreements could be a way of managing aspects of the highway estate. Roadside features should be sensitively repaired when required and preserved; and their setting conserved. The ‘adoption’ of such features by community based conservation groups should be encouraged, with the agreement of the highway authority or landowner and under safe supervision. Management agreements with English Heritage should be considered in respect to listed and scheduled features. Contractors should be explicitly made aware of the presence of
Page 29 of 45 milestones, mile plates and crosses, and instructed to work sensitively around them. Details should appear within an appropriate gazetteer so that works promoters are aware of their existence when planning to book road space. If it is necessary to remove a feature during the course of work then the historic environment service should be notified. The setting of ancillary features in relation to the highway and associated structures (such as bridges) should not be compromised by inappropriate development or unnecessary or unsympathetic signage or road markings.
4.8 Crossings
4.8.1 Bridges
There are many rural bridges for both pedestrians and vehicles. These crossings form part of the fabric and character of the area. Many are admired by residents and visitors; they define points along the journey.
Maintenance work on existing bridges and the future design of new ones needs to reflect the character of the surrounding area in order to ensure that bridges continue to play a positive role in reinforcing that character. Works may arise for several reasons, such as general maintenance, strengthening to current standards or enhancing a substandard bridge, or replacement which may result from deterioration, flood or accident damage.
There is a requirement to sign some bridges. If the clearance is less than 4.5 metres, a diversionary “Avoiding low bridge” route will be applied.
There may be conflict, when renovating an existing bridge, between the standards (if any) when the bridge was built and the current design standards. Assessment of the risk posed by departing from standards would also need to be considered. Listed building status places a responsibility on the highway authority to consult with English Heritage and the relevant local planning authority before work is undertaken. It must be noted that any bridge/structure could be considered as a heritage asset and management should be based on the Heritage Partnership Agreement (HPA) protocol. The National Planning Policy Framework (NPPF) allows for sites to be recognised as nationally significant archaeological sites even where they are hold no specific designation.
Best Practice Repairs and renovations should use traditional materials, including use of lime mortar, to match the existing structure. Heritage Partnership Agreements could be a way of managing listed structures. New bridge design will complement the surrounding landscape and architecture. Whilst innovative design is not to be discouraged, it should be of a nature and scale which complements and preferably enhances its setting. All works to bridges will take full account of any status they may have as
Page 30 of 45 listed structures or scheduled monuments. Appropriate advice from the planning authority and English Heritage should be sought in all cases. All bridge works and new bridge construction will take into account the relevant wildlife legislation with particular reference to the needs of otters, bats, migratory fish and other wildlife, which may be affected. Appropriate advice from Natural England should be sought in all cases. Safety barriers should not be used on bridges unless in the interests of safety at that particular location.
4.8.2 Fords
A number of minor roads in Cornwall pass through shallow water courses. These add character and charm to the visitor’s experience. However, the local community view may be different as these features can be the cause of journey disruption and can lead to a significant diversion the when water levels are too high or when roads become icy.
Fords are a cleared way through the water, often with a raised bridge to one side for pedestrians. Not all are formally surfaced but most are sealed with either concrete or tarmac.
A variant of the ford is a low water crossing, sometimes called an Irish Bridge. A simple low-water crossing is constructed with culverts sealed under a road surface. The culverts (often concrete pipes) carry the water in a stream keeping the crossing surface dry for most of the year. The term “low water crossing” implies that the crossing is usually dry, while “ford” implies that the crossing is usually wet. Under high flow conditions, water runs over the roadway and precludes vehicular traffic.
Both features require the warning sign ‘Ford’ and a backing sign advising the driver to ‘Try your brakes’. There may also be a ‘Road liable to flooding’ sign. Also, there will be depth gauges. Rarely is the stream or river named.
Best Practice Fords on minor roads should be retained; their upgrading to low water crossings or their replacement with bridges should be resisted unless for over-riding safety issues. The construction and design of both wet and dry crossings should be simple and in keeping with the local landscape character. Signing is to be kept to the minimum needed to satisfy safety requirements. Entry and exit signs, if required, will be placed back-to- back on single black poles.
Page 31 of 45 4.9 Boundary hedges, walls, fencing and gates
4.9.1 Hedging and Cornish hedges
Cornwall has approximately 5,600km of rural roads many of which are bounded by Cornish hedges. It is estimated that we have around 48,280km of hedges rich in wildlife and visually very attractive. There are many locally distinct styles of Cornish Hedges which contribute to local character around Cornwall. Across Cornwall the variety of hedges include the characteristics of flower-meadows, woodlands, scrub and wood margins, heathland, wetland, rocky outcrops and sea cliffs. Further information is available on the Council’s internet site (www.cornwall.gov.uk )
Many are also of historical importance. The successful conservation of these hedges is critical to Cornwall’s characteristic landscapes and much of the county’s wildlife.
The Hedgerows Regulations 1997 offer protection for hedgerows that are of significant archaeological, historic, wildlife or landscape value. Permission is normally required before removing hedgerows that are at least 20m in length, over 30 years old and contain a certain number of species of plant. The local planning authority will assess the importance of the hedge against the criteria set out in the regulations.
Proactive management of hedgerow vegetation is to be encouraged to maintain their vigour, longevity and wildlife value. This might include coppicing, laying and planting-up gaps. The guidance below is aimed at both highway authorities and land managers as each has differing responsibilities.
Very few hedges are the responsibility of Cornwall Council. Generally, boundary walls, hedges and fences are the responsibility of the adjacent land owner as is vegetation and trees growing out of the hedge.
Best Practice Encourage best practice by example and via publication and distribution of appropriate public information leaflets. If an established Cornish hedge needs to be removed for essential road works, the practicality of translocation / moving the hedge/bank should be considered in the first instance. Where this is not feasible, the next option should be to carefully dismantle and reconstruct the woody hedge. Archaeological recording and supervision may be required. During the bird nesting season where essential works are required their impact must be mitigated by only cutting the bottom 1 m of the hedge facing the road unless further cutting is required on highway user safety grounds. Hedges should not be flailed, laid or coppiced between late March and August inclusive (or September where late-breeding birds are likely to be present). Cutting in the latter part of the winter results in a slower growth
Page 32 of 45 during the year and the retention of berries for wildlife for longer. The road side of the hedge should require no more than annual cutting, dependent on its proximity to the highway. Where there is no verge between the hedge and metalled surface, a late summer cut may be considered to ensure the safety of pedestrians and riders. Trimming on a three year cycle should be encouraged where road safety is not an issue. New stone or turf faced banks/hedges should be constructed to a traditional design, and constructed by a specialist contractor, to match those of the locality, using materials and species which can be found naturally in local hedgerows and using plants of local provenance. All work on hedgerows will be carried out in accordance with the Hedgerows Regulations (1997) and the relevant wildlife legislation where this does not conflict with the Highways Act 1980. Local styles of Cornish Hedge using local stone will be used in new Rural Highway work and repairs.
4.9.2 Walls Walls are not dominant in Cornwall’s open countryside, except on its moors where dry stone construction is the most prevalent. The style of walling varies throughout the area, in part, due to the locally distinct building materials available.
Granite gateposts are a characteristic of the area.
Best Practice Care should be taken with repair and maintenance to ensure that only local materials are used and that the walling style reflects local tradition. New walls should closely follow the style of the local area. They should be constructed using local materials. Where road works necessitate the removal of a stone wall, or part of a wall, the stone should be retained, and the wall rebuilt in the same style, on a new alignment, Archaeological recording and supervision may be required for those of historic interest. Any un-used stone should be recorded in a Site Waste Management Plan before storing for reuse.
4.9.3 Fencing and gates The use of heavy-duty fencing for roadside boundaries, such as wooden post and rail or concrete post and wire, can have an intrusive and discordant effect in open countryside settings and so the use of traditional hedge-banks or stone walls is preferred. Where the use of fencing is unavoidable, consideration should be given to the use of the less obtrusive agricultural wooden post and wire fencing which is commonly used in a farm setting. Particular care is needed in skyline situations.
Best Practice The use of fences as roadside boundaries should be avoided in cases
Page 33 of 45 where it is practicable to use alternative boundary features traditional to the locality (mounds, hedges, walls or open boundaries, as appropriate). Where fences are used, post and wire is preferred, especially on skylines, as this blends into the landscape. Tree or shrub planting along the fence line can also help, where there is space to accommodate it. Where any locally distinctive types of gate are currently used they should be retained or replaced with a similar style. In all other cases, wooden five-bar, rather than metal, gates should be used when highway works create the need for a new access or the replacement of existing gates. These better complement the surrounding landscape. Gate posts and piers should reflect the predominant local style.
4.10 Junctions and roundabouts
Design
Cornwall has a large network of minor roads. Most of its junctions are T- junctions or crossroads, and there are a few split junctions, leaving a small grass area between the carriageways.
Junction improvements are sometimes necessary on safety grounds or as a result of development in an area. In most instances legislation requires specific standards to be met, however, some regulations do allow flexibility. The design of any new scheme should use the existing topography, vegetation, buildings and other structures, so that they appear an integral part of the landscape and historic road pattern. Solutions should reinforce local identity by careful choice of detailing, materials and street furniture.
Roundabouts are normally associated with urban areas or major roads, where the volume of traffic means they are considered to be essential. Regulation dictates lighting, mandatory signing and lining, the aesthetics of which may be considered inappropriate in rural areas. In view of this, other junction treatments are preferable.
Best Practice Junction improvements will only be considered where there is a proven safety need. Roundabouts should only be considered as a last resort. Where carriageway wide reduction is required, the area of carriageway should be reduced and the road realigned rather than use areas of hatching/lining. There should be a presumption of retaining trees, hedges and verges including any central grass areas. If Cornish hedging needs to be removed, the practicality of moving the hedge bank should be considered in the first instance. Where this is not viable, the next option should be to carefully dismantle and reconstruct the hedge. Archaeological recording and supervision may be required.
Page 34 of 45 Lighting will not be installed on roads unless there is a proven and overriding safety reason which cannot be addressed by other means. The preferred option is to install high reflectivity non-illuminated signs. Signing will be kept to a minimum (and in accordance with the “Signing Strategy”). It will be designed to have minimal impact on the landscape and the rural character of the area, whilst addressing safety and utility needs. Detailing and choice of materials will respect the local environment. “Standard” solutions or components will not always be appropriate. Kerbing of central grass areas should be avoided. Refer to Sponsorship of roundabouts policy
Visibility Splays
Many accidents occur at junctions. Visibility splays are intended to reduce the risk of such accidents by making it easier to see other road users. However, the lack of visibility splays reflects the rural nature and local distinctiveness of many landscapes.
Deep visibility splays can urbanize the appearance of rural settings (particularly where these are mown frequently) and can result in the removal of trees, hedges and banks.
Best Practice The use of deep visibility splays should be a last resort. Where traffic speed is a problem non–intrusive solutions should be utilized. Where visibility splays are proven to be necessary, steps should be taken to reduce their intrusiveness and urbanizing effect. Where the creation of new boundaries is necessary these should be in keeping with their surroundings. If a traditional Cornish hedge needs to be removed the practicality of translocation / moving the hedge bank should be considered in the first instance. Where this is not feasible, the next option should be to carefully dismantle and reconstruct the hedge. Planning permission, archaeological recording and supervision may be required. Fencing should be avoided.
4.11 Lay-bys, picnic areas and passing places Lay-bys and picnic sites can be found county-wide and they support a thriving tourism industry. They should be well-maintained whilst retaining the rural experience. Urban features should not be introduced into sensitive rural locations. Larger sites are nodal points for visitors and the provision of information is expected. In such cases, information should be relevant to the locality and likely onward journey rather than generic. The opportunity should be taken to reflect the local area and culture with the careful selection of images and materials.
Page 35 of 45 Passing places are a common feature of the area on the minor roads. They should be as informal if safety permits and should only be signed as “Passing Place” where obstructive parking is a real, ongoing issue.
Best Practice Planting in lay-bys and picnic sites should use species native to the area and stock of local provenance. The design of these features will reflect the surrounding landscape and require minimal maintenance. Planting should be designed and maintained so as to discourage crime and anti- social behaviour. Maintenance will reflect a balance between rural aesthetics and the practicality of being able to keep the area clean of litter etc Existing passing-places should not be formalised, including signage, kerbing or surfacing, unless there is an overriding safety or essential maintenance reason for doing so which cannot be addressed in other (non-intrusive) ways. Litter collection in lay-bys, passing places and picnic sites should be regular and thorough. Users of such sites will be encouraged to take their litter home with them. Where bins are provided they should be of a neutral colour and preferably of wood or stone.
4.12 Cattle grids
Cattle grids generally mark the transition between moorland and farmland. Their role is to act as a barrier to livestock whilst allowing the free passage of vehicles. With the rise of vehicular traffic cattle grids have all but replaced the old gated roads, which should be retained wherever possible. Simplicity of design will minimise the impact upon the landscape, especially of open moorlands, but measures should be taken to reduce the risk of small animals becoming trapped in the cattle grid pit. Sealing the surface of the bypass route used by horse riders, cyclists and pedestrians can make the feature over dominant in the landscape and should be avoided unless the levels of usage, and road safety and maintenance considerations, require otherwise.
Best Practice New cattle grids will be designed with bypass facilities. Preference should be given to the option of leaving cattle grid bypass surfaces unbound; unless considerations of road safety, maintenance, levels of usage and the nature of the locality dictate otherwise. The use of special ‘lever-handled’ gates is encouraged, as it will assist horse riders. Signing should be kept to the minimum to satisfy safety requirements. Ramps should be placed within the grid pits to enable small animals to escape.
Page 36 of 45 4.13 Designation Much of Cornwall’s unique landscape has been designated for protection. More than 35% of Cornwall is designated as an Area of Outstanding Natural Beauty, Conservation Area or Site of Special Scientific Interest. This needs to be reflected in works, whilst complying with legislation.
The Cornwall Area of Outstanding Natural Beauty is made up of 12 separate geographical areas and covers approximately 27% of the County – an area of 958 sq km (370 sq miles). It is one of 47 Areas of Outstanding Natural Beauty in the UK which, along with National Parks, represent the most outstanding examples of countryside landscape. The Cornwall Area of Outstanding Natural Beauty was designated in 1959 under the National Parks Act (with the Camel Estuary section being added in 1983). It received enhanced status under the Countryside and rights of Way (CROW) Act in 2000. ( www.cornwall -aonb.gov.uk)
Best Practice Before designing any new scheme or deciding maintenance regimes/schemes (including replacement of signs, lining etc) consideration should be given to the designation of the area. Sympathetic works will be done where financially viable. Gateway speed reduction schemes, extending beyond the 30mph limit, will be considered as urban and should only be changed where other speed reduction measures are proposed.
4.14 Trees
Only trees and woodland within the highway curtilage are the responsibility of the highway authority. Section 154 of the Highways Act 1980 gives highway authorities the power to require landowners to carry out cutting or felling to ensure that their hedge, tree or shrub does not obstruct highway users or obscure visibility, including illumination from street lights. Section 148 of the Act also requires the proper removal of parings from cutting works.
Trees, especially old ones, are important habitat, landscape and cultural features. The Planning Authorities can offer protection to trees and woodland by identifying them in Tree Preservation Orders. Once identified, planning consent may be required before works are carried executed. Outside settlement boundaries, the Forestry Commission should be consulted before removing trees as, in some instances, it may be necessary to obtain a felling license before the work can be carried out.
There are several important sources of guidance to follow and a number of British Standards apply. Particular attention should be paid to:
• BS 3998 – Tree Works • BS 5837 – Guide for Trees in Relation to Construction.
Page 37 of 45 • The National Joint Utilities Group guidelines for planning, installation and maintenance of utility services in proximity to trees (Publication Nº.10, April 1995). • Legislation and guidance relating to Tree Preservation Orders.
Road schemes sometimes include the planting of trees and shrubs within the highway curtilage to mitigate their landscape and wildlife impacts. Such landscape planting must be appropriate for a rural location and be managed to ensure that it achieves the original design objectives and to avoid highway problems (e.g. excessive leaf litter, root damage, obstruction of lighting and or the highway etc).
Trees should be cut back in a balanced way (not simply from the highway side) to ensure that limbs do not strike high sided vehicles (nominally to keep 5.1m above the carriageway clear) on all bus routes, HGV routes to industrial estates and where required for the purposes of aiding agricultural machinery movement. When cutting, consideration should be given to the additional loading of leaf cover in the summer. Excessive cutting can be detrimental to the rural environment and, unless actually required (to prevent obstruction or a danger to highway users), should not be undertaken. Systems should be put in place to ensure that “brushing” of tree limbs/growth is reported by bus operators (especially in relation to double-decker buses) so that remedial works can be programmed and before damage is caused by “strikes”.
It may not always be appropriate, and advice should be sort from Council tree advisers, but where possible:
Balancing, pruning and crown reduction should be considered before felling Trees should be replaced when felled or fallen Large logs and vertical stumps should be left to decay on site. This will encourage wildlife and saprophytes.
However, these actions should only be done where safe to do so and with the knowledge that the public may attempt to collect logs for firewood, roll them down embankments and that wood left on site may add to the severity of an accident (as they will be obstructions).
Best Practice Adopt and implement an appropriate strategy for the inspection of highway trees which balances the risks that they present with the societal benefits of their retention. Felling of roadside trees should be regarded as a measure of last resort and other measures such as pollarding or crown reduction should be considered first. Replanting should be considered on the same site. In advance of any works to roadside trees, check whether these are subject to any protection, such as a Tree Preservation Order. Any new planting proposed for road schemes should be planned into its early stages and use only species native to the area. The stock used should be of local provenance where this is available.
Page 38 of 45 Pruning, coppicing or pollarding of roadside trees may be undertaken for immediate safety reasons, or to achieve landscape/ecological benefits, or to keep a tree healthy (on the advice of an arboriculturalist). Material (except large logs and stumps) left after cutting should be removed immediately as it will impede the growth of ground flora. Chipped arisings should not be left on botanically important verges or in drainage ditches as they will initially suppress plant growth and impede drainage before adding nutrients as they decompose, so favouring the more vigorous species. Where safe and appropriate to do so large logs or stumps (inc vertical) should be left to decompose.
4.15 Injurious weeds There are five injurious weeds which are classified under The Weeds Act 1959. These are: common ragwort ( Senecio jacobaea ); spear thistle ( Cirsium vulgare ); creeping thistle ( Cirsium avense ); broadleaved dock ( Rumex obtusifolius ); and curled dock ( Rumex crispus ).
It is not an offence to allow these weeds to grow on highway verges, although they must not be allowed to spread to agricultural land, particularly grazing areas or land used to produce hay or silage.
The Ragwort Control Act 2003 resulted in the introduction of a specific Code of Practice relating to the control of ragwort, with this related to the level of risk that it presents. Whilst the routine cutting of verges can help to control this weed to some degree, additional control measures are necessary where these become particularly frequent and present a significant risk of spread. Hand-pulling remains the most effective environmentally friendly treatment although such weeds can be controlled with the application of herbicides.
Herbicides should only be used during the period when they are most effective and the optimum results will be obtained. Herbicides should not be applied during or before weather conditions that would render their use ineffective or result in the contamination of surrounding areas (e.g. heavy rain and or strong winds).
There is a range of other invasive weeds which are frequent in roadside locations and which require specific attention (refer to Wildlife Act 1981 – list of species of concern), in particular Japanese knotweed ( Fallopia japonica ), Himalayan Balsam ( Impatiens glandulifera) a range of other invasive knotweeds and giant hogweed ( Heracleum mantegazzianum ).
The Wildlife and Countryside Act 1981 makes it an offence to cause the spread of these species. Action is necessary to prevent their spread and
Page 39 of 45 in some cases litigation where the weeds cause a nuisance, structural damage etc. In addition, special precautions must be adopted in relation to invasive plants to prevent their inadvertent spread during routine highway maintenance activities.
The threat presented by these is recognised by The Invasive Non-Native Species Framework Strategy (DEFRA 2008) but a co-ordinated approach to their control has yet to be adopted. However, it is necessary to take action before they become a nuisance.
Best Practice Highway inspection regimes should be used to identify rural verges at risk from invasive weeds and appropriate maintenance or control programmes adopted to appropriately address this. The distribution of highly invasive species on roadside verges, especially invasive knotweeds, should be accurately plotted using a GPS device to facilitate their effective control, avoid their inadvertent spread and allow easier sharing of data. The use of herbicides on roadside verges should be kept to a minimum to limit environmental impacts. However, appropriate herbicide control regimes should be employed, where necessary, to control injurious and invasive species. Further guidance on Japanese knotweed is available on www.cornwall.gov.uk ‘Japanese knotweed: guidance for identification and control’
4.16 Geology Cornwall and the Isles of Scilly have a great diversity of rocks, soils, landscapes and mineral deposits, reflecting a rich and varied geological heritage that spans the last 500 million years of Earth’s history; it’s ‘geodiversity’. Many geological sites in Cornwall are of national and international importance and there is a growing recognition of the need to identify, conserve and manage this highly distinctive geological heritage.
Geological features are often exposed within the highway network, both, during construction and long-term maintenance. Such operations offer opportunities to reveal previously unexposed geological sections, either temporarily during construction, or as permanent features. The features exposed by such work can contribute to our appreciation of the natural heritage of Cornwall and should be preserved and kept exposed where possible.
Best Practice There should be a presumption, wherever possible, to maintain geological and features exposed in road construction or widening operations. Where instability in exposed cuttings presents a hazard to highway users, consideration should be given to stabilization techniques which retain any significant geological features.
Page 40 of 45 Where practical to do so, the design of road schemes should incorporate safe access to geological exposures, so that these might be visited and recorded by specialist groups and researchers. Procedures should be adopted to ensure that full geological records are made of new rock exposures revealed during road improvement or similar works, including temporary exposures, at the time of construction. This should be achieved through liaison with the Cornwall Geoconservation Group (CGG) of Cornwall Wildlife Trust www.cornwallwildlifetrust.org.uk/geology Materials used in highway construction should be chosen to reflect the nature of the underlying geology, such as the appropriate selection of hedging stone, dimension stone etc. Where possible, materials should be sourced from local quarries Where mining spoils are encountered during construction, these should be evaluated by CGG and if appropriate, relocated to an appropriate position within close proximity Routine maintenance practices should take account of exposed rock outcrops; preventing damage and deterioration, and where appropriate, reducing loss of exposure through vegetation control.
4.17 Waste receptacles The storage of waste receptacles within the highway corridor is predominantly an issue in urban environment. However, the issue should not to be ignored or the adverse effects underestimated in the rural landscape.
Wheelie bins, bins, cardboard boxes, recycling containers and black plastic bags etc stored on the highway have a significant, negative impact on the aesthetics of an area. They can obstruct the free passage and enjoyment of the highway; and, can given rise to serious environmental concerns.
The Council is aware of these issues and is producing a policy document and associated guidance (in the form of a best practice). These documents will detail how the Council will seek to mitigate the impact of receptacles and the measures available should the Council decide that their presence is unacceptable. As Highway Authority, Planning Authority and Waste Authority, the Council will endeavour to ensure a whole authority approach, thus, the Council will look to address issues of waste storage and collection from planning applications through to dealing with existing problem areas.
Best Practice All new developments and re-developments (i.e. planning applications) should included measures that ensure waste is stored off highway in areas with suitable access for collection and visually unobtrusive. Existing problems sites should be assessed and addressed in accordance with the Council’s best practice for waste receptacles. All avenues should be explored to secure safe and accessible storage off highway; where this is impractical and where acceptable (to the Council)
Page 41 of 45 areas of highway may be demarked as authorized storage areas. Demarcation must be suitable to the environment and normally with road pins or nails. The use of paint should be resisted. Where authorized storage areas are within the highway verge demarcation should be suitable and have due consideration from the landscape character of the area.
5.0 Implementation and Quality Assurance This best practice guide will be implemented and reviewed in the following ways:
The guide will be disseminated to Cornwall Council staff who work in Policy development; Scheme designs; Highways asset management; Highway maintenance and Highway development control through staff awareness training sessions to ensure that those who need to use the principles in their day to day work are aware of the best courses of action.
The guide will be available on the Cornwall Council website for use by external organisations such as parish councils and utility companies. They will also be made aware of the document’s publication.
Where possible outcomes will be quantified, for example, a record kept on the asset infrastructure database of white lines or signs which have been removed.
Those schemes designed via the Engineering Design group will be self- certified to confirm compliance with the best practice guide along with other relevant legislation and best practice. A sample will also be examined more thoroughly by the Transportation client to ensure conformity.
The whole guidance document should be reviewed every 5 years to assess its effectiveness in delivering its stated aims.
Page 42 of 45 Appendix 1: List of Consultees
Internal External Cornwall Councillors Town and Parish Councils Road Safety Bus operators Highways Electrical Freight organisation Design Planning Motorcycling representative Asst Heads of Planning Cycle representative Development Control Sustrans Landscape Disability representatives Localism Cornwall Association of Tourist Vegetation officer Attractions Historic Environment Council for the Protection of Rural Countryside access England Community Safety Highways Agency Waste and minerals Public Health (NHS) Public Health and Protection Cornwall and Isles of Scilly PCT Economic Development South West Ambulance Service Trust Chief Executives dept Kernow Clinical Commissioning Group Cormac: Department for Transport Engineering Design Plymouth CC and Devon CC Contracts Milestone Society Maintenance Police PROW Countryside Access Forum General Managers Utility companies Vegetation adviser Cornwall Chamber of Commerce Federation of Small Business Local Enterprise Partnership Cornwall AONB Partnership: Natural England Cornwall Council (including. Cornwall Development Company (VisitCornwall, Cornwall Agri-Food Council and Low Carbon Cornwall) National Trust Environment Agency English Heritage National Farmers Union Country Land and Business Association Cornwall Association of Local Councils Cornwall Wildlife Trust Cornwall Sustainable Tourism Project (CoaST) Rural Cornwall & Isles of Scilly Partnership (RCP) Cornwall Rural Community Council
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Prepared by:
Hannah Harris Adrian Drake
Policy Development Officer Highway Network Policy Officer
Transportation Transportation
10 May 2013
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If you would like this information in another format please contact:
Cornwall Council County Hall Treyew Road Truro TR1 3AY
Telephone: 0300 1234 100
Email: [email protected] www.cornwall.gov.uk