It is not altogether foreign to the subject to notice here, the error of forming the inclination of the roadway upon bridges, in the direction of their length, or across the river, from a section of a curve for the whole length, rather than from two lines joined together by a curve, as I have recommended for the cross section of a road. It is to this cause that the very heavy pull is owing, which must have been noticed in just getting upon a bridge, which decreases as we advance towards the middle of the bridge, and which would not have been so much felt, had it been spread regularly over the whole length (see No. 5, in the plan.)
The disadvantages of a flat road again are, that even if it is supposed to continue so, it is bad in principle, by doing away the tendency which a road ought to have, in every direction, to clear itself of water; but as the greatest wear will always be in the middle of the road, a level or flat road will very soon be concave; the middle of the road then becomes the watercourse, and the consequence, if the road is upon level ground, is, that the water and mud lie upon it, and injure the foundation and materials; or, if otherwise, that the stones or materials of the road are washed bare, and liable to be loosened and thrown up by the wheels coming into contact with their exposed angular surfaces. Many of the roads in the country afford examples of this, particularly after heavy rains, and if the country is at all hilly.
The best form for a road, in order to avoid those evils, is,—in my opinion, to form it, and to keep it with just a sufficient rise towards the middle, to incline the water towards the sides; and in place of making the whole width the section of one curve, to form it by two straight lines, forming inclined planes, and joined by a curve towards the middle. I have prepared a section of a road in the manner I have described (No. 4.) and as the lines, excepting at the centre, are straight, the section may be made to suit almost any greater or less width, by merely extending them. The section is taken nearly from a part of a road made under my direction in the country. The dotted line drawn upon it shows the form I alluded to when speaking of the circular road that ought to be avoided. I have seen ridges formed in what I thought well formed land, much after what I would recommend for the form of a road. The object of forming the land into ridges, raised a little in the middle, is the same as that of raising the middle of a road to prevent the water from settling upon it, and what is sufficient for the ploughed land is certainly enough for a road. If the road is of good stone, four to five inches rise in ten feet is sufficient, gravel, and other inferior material, will allow a little more. In this section it may be worth while to notice the situation of the hedge and ditch, or rill on each side of the road, a more common, but I think a more dangerous and worse way, is to form the ditch close to the road, and to plant the quick upon a raised bank beyond it. I have dotted this mode also upon the section. The advantage of having the hedge next the road, consists in its greater safety to the traveller, particularly if a ditch of any considerable depth is necessary, and in the hedge being supported in its growth from the ground under the road, without drawing upon the farmer’s side of the ditch; and it is I believe, this last advantage, which has led the author of an article in the Edinburgh Farmer’s Magazine, with whom I am acquainted, to make nearly the same observations. In a length of road, made eight or ten years since, over a marsh, partly a bog, considerably under high water, where, from the level of the ground, and of the drainage, the ditches were obliged to be deep and wide, and therefore dangerous; I ordered some cuttings of willow to be stuck into the roadside of the ditch. In about two years they formed a blind to the ditch, and are now so thick and strong as to be a complete security from all danger. I may here take the liberty to say, that nothing is more injurious to roads than the permitting high hedges and plantations near them, their effect in keeping the rain suspended and dripping upon the road longer than otherwise it would, and in preventing the air and sun from drying the roads, is most destructive and very general: and as the Commissioners or principal men of the district are often the greatest offenders in this respect, the evil is one in which both the enactments and the application of them require the strictest attention and impartiality. After a road is properly made, the comfort of the traveller and the principle of economy on the part of the road-trust, both demand that it be not allowed to get much out of repair; the adage of “a stitch in time,” applies particularly to the repairing of roads, and though not universally practised, is so well known, that it is, I presume, unnecessary to state reasons, for what no one acquainted with the subject at all doubts. The best season for repairing roads is, I think, the spring or very early in the summer, when the weather is likely neither to be very wet nor dry, for both of these extremes prevent the materials from consolidating, and therefore cause a waste of them, and at the same time, either a heavy or a dusty road; but if done at the time I have recommended, the roads are left in good state for the summer, and become consolidated and hard to resist the work of the ensuing winter.
When I remarked the great improvement in many of the highways during the last twenty years, I by no means meant to say that they are not still capable of much greater, or that many of them have not been much neglected. In many districts this is notoriously the case, and when the materials are the best, the roads are frequently the worst. There is no road round London upon which there is more heavy country traffic, than the first stage of the great Essex or Mile End road; and owing to the well directed attention of the chairman of the commissioners, and of their surveyor, there are few better roads any where, excepting in very wet heavy weather. Indeed I do not think it possible to do much, if any thing, in improving the superintendance and repair of that road, with the material at present in use; for the nature of which, as well as for the exclusion of air and sun by buildings, proper allowance ought to be made in judging of the state of the roads near London, and when this is done, and the great wear considered, we may find that in very many cases, there is but little cause to find fault, and much room for commendation. The traffic upon the Mile End road is however too much for a gravelled road, and the expanse for repair for the first three miles is consequently very great. The same remarks as to conduct and attention, are merited by the commissioners of other districts, and their gratuitous services entitle them to the thanks of the public; while in some parts of the kingdom, including Scotland, where the material is the very best, the roads are often in the worst condition, and the most unpleasant to travel upon. The stone is put in large pieces upon the road, without any covering or mixture of smaller material, and is left to take the chance of being broke and formed into a solid, or of tumbling loose upon the road. When a track is once formed in this stone-heap, it is not to be expected that the horses will be easily made to move out of it; and unless the thoroughfare is considerable, the road in use consists sometimes for a long period, of the two deep wheel tracks, which are always filled with water during the winter, and of the horse’s path between them, the other parts being covered with a body of loose stones, and rendered absolutely useless. These observations apply to some lengths of the most frequented highways, but are more particularly applicable to the cross roads and the parish roads. I had the opportunity of seeing the roads in the West Highlands last autumn; they are formed with judgement, and kept in good repair.
When the highways in a county are under the management of trustees, it is common to divide them, and to assign a particular length to the trustees who live near it, without employing any person in the capacity of a surveyor. When this is the case, the state of repair depends much upon the observation and attention of the trustee; and the change in the state of the road often marks out the change of superintendence. A relative of mine has given up a good deal of his time and attention to a part of the roads in Stirlingshire, of which he is one of the trustees: no professional man could, perhaps, do the business better; and the effect of this attention is very visible. Instances of the same kind are frequent, but it is not to be expected that trustees generally can both understand, and have so great a relish for serving the public, as that the detail of the repairs of roads, if imposed upon them, will be always executed with the attention they require.
The case of parish roads is still worse, where the inhabitants are, without much regard to their habits of life, obliged in their turns to serve the annual office of surveyor of the highways. If such persons mean to signalize themselves during their being in office, the first step is often to undo what their predecessor has done, or has not perfected; and the love of self and of friends determines them to make sure while they have it in their power, that some favoured roads or lanes are put into proper order. If the surveyor is, on the contrary, an unwilling officer, or if the attention to his own affairs prevents him giving his time to the duties of the office, he avoids the fine by accepting the charge, pays the bills and wages without much knowledge of their nature or accuracy, and one of the labourers becomes, in fact, the road-surveyor; but in every case of annual nominations there is this evil, that so soon as the surveyor has, by a year’s apprenticeship, begun to know something of the nature of the business, his place is filled by another, who comes in for the same time to take lessons at the expense of the parish. Thus, while many simple trades require, by law, an apprenticeship of seven years, before the person is thought qualified to practise with his own capital, the road-surveyor is supposed fit, the very hour he is named, for an office which requires at least as much understanding and experience as the average of trades, and in which he has the capital of all the parish to speculate with. For these reasons, I have always been convinced of the propriety of an intelligent accountable officer in each district, but I do not see to whom he can be responsible with so great propriety, or in other words, in whom the chief control can be so well vested, as in the gentlemen who live in the county, who are almost daily witnesses of what is doing, and are chiefly interested in keeping down the expenses, at the same time having their roads in good repair.
Whether a board of roads, appointed by parliament, meeting once every year, and forming a report of the expense and state of the roads in each county, to be presented to parliament, with such observations as present themselves, as to improvements, or otherwise, taken from general surveys made by persons appointed by them, would be useful, by exciting a spirit of emulation and attention on the part of the different trusts, every member of this honourable Committee is as able, and perhaps more able, to give a disinterested judgment than I am; for I conclude, that if surveys are to be made, engineers will think they have some chance of being selected as the most proper persons to be employed on the occasion, under the board. The state of the roads continue to improve throughout the kingdom. Every friend to his country will be pleased, if the march of this improvement can be accelerated by a moderate reform, and carried into remote corners and parishes, where it appears most to be wanted; but I much question the propriety of such a revolution as would lessen the interest, which, in their present situation, the commissioners ought to feel in the repair of their roads, and the consequence which the appointment tends to give them.
If country road-surveyors are appointed throughout the kingdom, the nomination might be with the commissioners of the county, and if friendship or local interest is supposed to operate too far, the nomination, or the examination previous to election, or the veto after it, might be with the central or other board, the members of which might be supposed not to be connected with the individual, in the same way as pilots and the masters of men of war are examined by the elder brethren of the Trinity House. And sub-surveyors or surveyors of parishes, might in the same manner be appointed, or undergo an examination by the county commissioners and county surveyor, to qualify them to be elected; for it is to be lamented, that in cases where parishes have, from the reasons I have mentioned, made the office of road-surveyors permanent, with a salary: the election being popular, has fallen, not upon the candidate who was really the best qualified, but probably upon some honest decayed tradesman, who, having proved himself unable to manage his own business, which he ought to have known the best, has thereby, and by his long residence, qualified himself for managing a public business, of which he probably knows nothing, but whether he does, or does not, rarely enters into the consideration of the majority of the voters.
In what manner do you think the extra toll for overweight ought to be regulated; whether by the weight, or by the number of horses used, without regard to the weight?—I think by the weight most certainly; unless the object is to discourage the breed of small horses, and encourage the over-loading and straining, of horses of all sizes. The number of horses is a very imperfect measure, or rather no measure at all of the injury done to the roads; for a load of three tons, drawn by one horse, injures the road as much, to say the least of it, as if two horses were used. It is not out of place to mention the extreme disproportion between the penalties for overweight, and the injuries which they are meant to compensate for, or to prevent; particularly when this over-loading is the effect of ignorance, which is almost always the case. When the tolls are in the hands of trustees, the penalty is almost always reduced; a proof that that fixed by law is exorbitant; but when the tolls are farmed, and the trustees do not reserve the power of mitigating the penalty, the poor carman has less chance of being saved perhaps from ruin.