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ForewordStreets are the arteries of our communities –a community’s success can depend on how wellit is connected to local services and the widerworld. However, it is all too easy to forget thatstreets are not just there to get people fromA to B. In reality, streets have many otherfunctions. They form vital components ofresidential areas and greatly affect the overallquality of life for local people.Places and streets that have stood the testof time are those where traffic and otheractivities have been integrated successfully,and where buildings and spaces, and the needsof people, not just of their vehicles, shape thearea. Experience suggests that many of thestreet patterns built today will last for hundredsof years. We owe it to present and futuregenerations to create well-designed places thatwill serve the needs of the local community well.In 2003, we published detailed research1 whichdemonstrated that the combined effect of theexisting policy, legal and technical frameworkwas not helping to generate consistently goodquality streets. Without changes this frameworkwas holding back the creation of the sustainableresidential environments that communities needand deserve.As a society, we have learned to appreciatethe value of a clear and well-connected street1DfT, ODPM (July 2003)Better Streets, BetterPlaces – DeliveringSustainable ResidentialEnvironments: PPG3and Highway Adoption.London: ODPM.Gillian Merron MPTransport Minister network, well defined public and private spaces,and streets that can be used in safety by a widerange of people. We also understand the benefitsof ensuring that the different functions of streetsare integral to their design from the outset. Butwe need to do more to recognise the role thatstreets play in the life of a community, particularlythe positive opportunities that they can bringfor social interaction. To achieve this we needstrong leadership and clear vision. Importantly, weneed to tackle climate change, and helping andencouraging people to choose more sustainableways of getting around will be key.Manual for Streets explains how to respond tothese issues. Although it does not set out newpolicy or legislation, it shows how the designof residential streets can be enhanced. It alsoadvises on how street design can help createbetter places – places with local distinctivenessand identity. In addition, it establishes a commonreference point for all those involved in thedesign of residential neighbourhoods.This publication represents a strong Governmentand Welsh Assembly commitment to the creationof sustainable and inclusive public spaces. Wehope that everyone who plays a part in makingand shaping the built environment will embraceits principles to help deliver places that work forcommunities now, and in the future.Baroness Andrews OBEParliamentary UnderSecretary of StateCommunities and LocalGovernmentTamsin Dunwoody AMDeputy Minister for Enterprise,Innovation and NetworksDeputy Minister for Environment,Planning & CountrysideManual for Streets

PrefaceManual for Streets (MfS) replaces DesignBulletin 32, first published in 1977, and itscompanion guide Places, Streets and Movement.It puts well-designed residential streets at theheart of sustainable communities.the environment. MfS addresses these points,recommending revised key geometric designcriteria to allow streets to be designed as placesin their own right while still ensuring that roadsafety is maintained.For too long the focus has been on themovement function of residential streets. Theresult has often been places that are dominatedby motor vehicles to the extent that they fail tomake a positive contribution to the quality oflife. MfS demonstrates the benefits that flowfrom good design and assigns a higher priority topedestrians and cyclists, setting out an approachto residential streets that recognises their role increating places that work for all members of thecommunity. MfS refocuses on the place functionof residential streets, giving clear guidance onhow to achieve well-designed streets and spacesthat serve the community in a range of ways.MfS is clear that uncoordinated decision-makingcan result in disconnected, bland places thatfail to make a contribution to the creationof thriving communities. It recommends thatdevelopment teams are established to negotiateissues in the round and retain a focus on thecreation of locally distinct, high-quality places.Where high levels of change are anticipated,designers and other stakeholders are encouragedto work together strategically from an earlystage. MfS also recommends the use of toolssuch as masterplans and design codes.MfS updates the link between planning policyand residential street design. It challenges someestablished working practices and standards thatare failing to produce good-quality outcomes,and asks professionals to think differently abouttheir role in creating successful neighbourhoods.It places particular emphasis on the importanceof collaborative working and coordinateddecision-making, as well as on the value ofstrong leadership and a clear vision of designquality at the local level.Research carried out in the preparation ofManual for Streets indicated that many of thecriteria routinely applied in street design arebased on questionable or outdated practice.For example, it showed that, when long forwardvisibility is provided and generous carriagewaywidth is specified, driving speeds tend toincrease. This demonstrates that driver behaviouris not fixed; rather, it can be influenced byManual for StreetsNeighbourhoods where buildings, streets andspaces combine to create locally distinct placesand which make a positive contribution to thelife of local communities need to become morewidespread. MfS provides a clear frameworkfor the use of local systems and procedures;it also identifies the tools available to ensurethat growth and change are planned for andmanaged in an integrated way. The aspirationsof MfS – interdisciplinary working, strategiccoordination and balanced decision making –will only become a reality if they are developedand applied at a local level. This is alreadyhappening in some places, and the results arepromising – this document aims to make theadoption of such practice the norm.MfS does not set out new policy or introducenew additional burdens on local authorities,highway authorities or developers. Ratherit presents guidance on how to do thingsdifferently within the existing policy, technicaland legal framework.

AContext and process

Countryside Properties1Introduction

Chapter aims Set out the aims of Manual for Streets. Promote greater collaboration betweenall those involved in the design, approvaland adoption processes. Summarise key changes from previousguidance.1.1Aims of the document1.1.1There is a need to bring about atransformation in the quality of streets. Thisrequires a fundamental culture change in theway streets are designed and adopted, includinga more collaborative approach between the designprofessions and other stakeholders. People needto think creatively about their various roles inthe process of delivering streets, breaking awayfrom standardised, prescriptive, risk-aversemethods to create high-quality places.1Office of the DeputyPrime Minister (ODPM)(2005) Planning PolicyStatement 1: DeliveringSustainable Development.London: The StationeryOffice (TSO).2 Communities and LocalGovernment (2006)Planning Policy Statement3: Housing. London: TSO.3 Welsh AssemblyGovernment (2002).Planning Policy Wales.Cardiff: National Assemblyfor Wales (NAfW).Chapter 2, Planning forSustainability.4 Commission forArchitecture and the BuiltEnvironment (CABE)(2006) The Principles ofInclusive Design (TheyInclude You). London:CABE. (Wales: Seealso Welsh AssemblyGovernment (2002).Technical Advice Note 12:Design. Cardiff: NAfW.Chapter 5, Design Issues.)1.1.2Streets make up the greater part of thepublic realm. Better-designed streets thereforecontribute significantly to the quality of the builtenvironment and play a key role in the creationof sustainable, inclusive, mixed communitiesconsistent with the policy objectives of PlanningPolicy Statement 1: Delivering SustainableDevelopment (PPS1)1, Planning Policy Statement3: Housing (PPS3)2 and Planning Policy Wales(PPW).31.1.3Manual for Streets (MfS) is expectedto be used predominantly for the design,construction, adoption and maintenance of newresidential streets, but it is also applicable toexisting residential streets subject to re-design.For new streets, MfS advocates a return to moretraditional patterns which are easier to assimilateinto existing built-up areas and which have beenproven to stand the test of time in many ways.1.1.4Streets should not be designed just toaccommodate the movement of motor vehicles.It is important that designers place a high priorityManual for StreetsCountryside Properties Explain the status of Manual for Streetsand its relationship with local designstandards and the Design Manual forRoads and Bridges.Figure 1.1 Streets should be attractive places thatmeet the needs of all users.on meeting the needs of pedestrians, cyclists andpublic transport users, so that growth in thesemodes of travel is encouraged (Fig. 1.1).1.1.5MfS aims to assist in the creation ofstreets that: help to build and strengthen thecommunities they serve; meet the needs of all users, by embodyingthe principles of inclusive design (see box); form part of a well-connected network; are attractive and have their owndistinctive identity; are cost-effective to construct andmaintain; and are safe.The principles of inclusive designInclusive design:4 places people at the heart of the design process; acknowledges diversity and difference; offers choice where a single solution cannotaccommodate all users; provides for flexibility in use; and provides buildings and environments that areconvenient and enjoyable to use for everyone.MfS discourages the building of1.1.6streets that are: primarily designed to meet the needs ofmotor traffic; bland and unattractive; unsafe and unwelcoming to pedestriansand cyclists; difficult to serve by public transport; and poorly designed and constructed (Fig. 1.2).11

1.2Andrew Cameron, WSP1.1.7For the purposes of this document, astreet is defined as a highway that has importantpublic realm functions beyond the movement oftraffic. Most critically, streets should have a senseof place, which is mainly realised through localdistinctiveness and sensitivity in design. They alsoprovide direct access to the buildings and thespaces that line them. Most highways in built-upareas can therefore be considered as streets.Who the manual is for1.2.1MfS is directed to all those with apart to play in the planning, design, approvalor adoption of new residential streets, andmodifications to existing residential streets. Thisincludes the following (in alphabetical order): Organisations:– developers;– disability and other user groups;– emergency services;– highway and traffic authorities;– planning authorities;– public transport providers;– utility and drainage companies; and– waste collection authorities. Professions:– access/accessibility officers;– arboriculturists;– architects;– drainage engineers;– highway/traffic engineers;– landscape architects;– local authority risk managers;– police architectural liaison officers andcrime prevention officers;– road safety auditors;– street lighting engineers;– town planners;– transport planners;– urban designers.1.2.2These lists are not exhaustive and thereare other groups with a stake in the design ofstreets. Local communities, elected membersand civic groups, in particular, are encouraged tomake use of this document.1.2.3MfS covers a broad range of issuesand it is recommended that practitioners readevery section regardless of their specific area ofinterest. This will create a better understandingof the many and, in some cases, conflicting12Figure 1.2 Streets should not be bland andunwelcoming.priorities that can arise. A good design willrepresent a balance of views with any conflictsresolved through compromise and creativity.1.3Promoting joint working1.3.1In the past street design has beendominated by some stakeholders at the expenseof others, often resulting in unimaginativelydesigned streets which tend to favour motoristsover other users.1.3.2MfS aims to address this by encouraginga more holistic approach to street design, whileassigning a higher priority to the needs ofpedestrians, cyclists and public transport. Theintention is to create streets that encouragegreater social interaction and enjoyment while stillperforming successfully as conduits for movement.1.3.3It is important for the various parts oflocal government to work together when givinginput to a development proposal. Developers maybe faced with conflicting requirements if differentparts of local government fail to coordinate theirinput. This can cause delay and a loss of designquality. This is particularly problematic whenone section of a local authority – for examplethe highway adoption or maintenance engineers– become involved late on in the process andrequire significant changes to the design. Acollaborative process is required from the outset.1.4DMRB and other design standards1.4.1The Department for Transport does notset design standards for highways – these are setby the relevant highway authority.Manual for Streets

1.4.2The Secretary of State for Transport isthe highway authority for trunk roads in Englandand acts through the Highways Agency (HA).In Wales the Welsh Assembly Government is thehighway authority for trunk roads. The standardfor trunk roads is the Design Manual for Roadsand Bridges (DMRB).5 1.4.3Some trunk roads could be describedas ‘streets’ within the definition given in MfS,but their strategic nature means that trafficmovement is their primary function. MfS doesnot apply to trunk roads.1.61.4.4The DMRB is not an appropriate designstandard for most streets, particularly those inlightly-trafficked residential and mixed-use areas. applying a user hierarchy to the designprocess with pedestrians at the top; emphasising a collaborative approach tothe delivery of streets; recognising the importance of thecommunity function of streets as spaces forsocial interaction; promoting an inclusive environment thatrecognises the needs of people of all agesand abilities; reflecting and supporting pedestrian desirelines in networks and detailed designs; developing masterplans and preparingdesign codes that implement them forlarger-scale developments, and usingdesign and access statements for allscales of development; creating networks of streets that providepermeability and connectivity to maindestinations and a choice of routes; moving away from hierarchies of standardroad types based on traffic flows and/orthe number of buildings served; developing street character types on alocation-specific basis with reference toboth the place and movement functionsfor each street; encouraging innovation with a flexibleapproach to street layouts and the use oflocally distinctive, durable and maintainablematerials and street furniture; using quality audit systems thatdemonstrate how designs will meet keyobjectives for the local environment; designing to keep vehicle speeds at orbelow 20 mph on residential streets unlessthere are overriding reasons for acceptinghigher speeds; and using the minimum of highway designfeatures necessary to make the streetswork properly.1.4.5Although MfS provides guidance ontechnical matters, local standards and designguidance are important tools for designingin accordance with the local context. Manylocal highway authorities have developed theirown standards and guidance. Some of thesedocuments, particularly those published in recentyears, have addressed issues of placemakingand urban design, but most have not. It istherefore strongly recommended that localauthorities review their standards and guidance toembrace the principles of MfS. Local standardsand guidance should focus on creating andimproving local distinctiveness through theappropriate choice of layouts and materials whileadhering to the overall guidance given in MfS.1.5Development of Manualfor Streets1.5.1The preparation of MfS wasrecommended in Better Streets, Better Places,6which advised on how to overcome barriers tothe creation of better quality streets.5 Highways Agency (1992)Design Manual for Roadsand Bridges. London:TSO.6 ODPM and Departmentfor Transport (2003) BetterStreets, Better Places:Delivering SustainableResidential Environments;PPG3 and HighwayAdoptionLondon: TSO.1.5.2MfS has been produced as acollaborative effort involving a wide range of keystakeholders with an interest in street design.It has been developed by a multi-disciplinaryteam of highway engineers, urban designers,planners and researchers. The recommendationscontained herein are based on a combination of: primary research; a review of existing research; case studies;Manual for Streetsexisting good practice guidance; andconsultation with stakeholders and practitioners.1.5.1During its preparation, efforts havebeen made to ensure that MfS represents abroad consensus and that it is widely acceptedas good practice.Changes in approach1.6.1The main changes in the approach tostreet design that MfS recommends areas follows:13

2Andrew Cameron, WSPStreets in context4

Chapter aims Explain the distinction between ‘streets’and ‘roads’. Summarise the key functions of streets. Propose a new approach to definingstreet hierarchies, based on theirsignificance in terms of both placeand movement. Set out the framework of legislation,standards and guidance that apply tothe design of streets. Provide guidance to highway authoritiesin managing their risk and liability.2.1Introduction2.1.1This chapter sets out the overallframework in which streets are designed,built and maintained.Streets – an historical perspectiveMost historic places owe their layout to theiroriginal function. Towns have grown up arounda market place (Fig. 2.1), a bridgehead or aharbour; villages were formed according to thepattern of farming and the ownership of theland. The layouts catered mostly for movementon foot. The era of motorised transport andespecially privately-owned motor vehicles has,superficially at least, removed the constraint thatkept urban settlements compact and walkable.a2.1.2The key recommendation is thatincreased consideration should be given tothe ‘place’ function of streets. This approachto addressing the classification of streetsneeds to be considered across built-up areas,including rural towns and villages, so that abetter balance between different functionsand street users is achieved.2.2Streets and roads2.2.1A clear distinction can be drawnbetween streets and roads. Roads areessentially highways whose main functionis accommodating the movement of motortraffic. Streets are typically lined withbuildings and public spaces, and whilemovement is still a key function, there areseveral others, of which the place functionis the most important (see ‘Streets – anhistorical perspective’ box).When the regulation of roads and streetsbegan, spread of fire was the main concern.Subsequently health came to the forefront and theclassic 36 ft wide bye-law street was devised as ameans of ensuring the passage of air in denselybuilt-up areas. Later, the desire to guarantee thatsunshine would get to every house led to therequirement for a 70 ft separation between housefronts, and this shaped many developments fromthe 1920s onwards.It was not until after the Second World War,and particularly with the dramatic increase in carownership from the 1960s onwards, that trafficconsiderations came to dominate road design.bManual for StreetsAndrew CameronFigure 2.1 Newark: (a) the Market Place, 1774;and (b) in 2006.15

2.2.2Streets have to fulfil a complex varietyof functions in order to meet people’s needs asplaces for living, working and moving aroundin. This requires a careful and multi-disciplinaryapproach that balances potential conflictsbetween different objectives.2.2.3In the decades following the SecondWorld War, there was a desire to achieve a cleardistinction between two types of highway: distributor roads, designed for movement,where pedestrians were excluded or, at best,marginalised; and access roads, designed to serve buildings,where pedestrians were accommodated.This led to layouts where buildings were set inthe space between streets rather than on them,and where movement on foot and by vehicle wassegregated, sometimes using decks, bridges orsubways. Many developments constructed usingsuch layouts have had significant social problemsand have either been demolished or unde

Manual for Streets (MfS) replaces Design Bulletin 32, first published in 1977, and its companion guide Places, Streets and Movement. It puts well-designed residential streets at the heart of sustainable communities. For too long the focus has been on the movement function of residential streets