Part 1

REMARKS

ON THE PRESENT

_SYSTEM OF ROAD MAKING, &c._

H. Bryer, Printer, Bridge-street, Blackfriars.

REMARKS ON THE PRESENT _SYSTEM OF ROAD MAKING_; WITH OBSERVATIONS, DEDUCED FROM PRACTICE AND EXPERIENCE, WITH A VIEW TO A REVISION OF THE EXISTING LAWS, AND THE INTRODUCTION OF IMPROVEMENT IN THE METHOD OF MAKING, REPAIRING, AND PRESERVING ROADS, AND DEFENDING THE ROAD FUNDS FROM MISAPPLICATION. SEVENTH EDITION, CAREFULLY REVISED, WITH AN APPENDIX, AND REPORT FROM THE SELECT COMMITTEE OF THE HOUSE OF COMMONS, JUNE 1823, _WITH EXTRACTS FROM THE EVIDENCE_.

BY JOHN LOUDON MᶜADAM, ESQ.

GENERAL SURVEYOR OF THE ROADS IN THE BRISTOL DISTRICT.

_LONDON_:

PRINTED FOR LONGMAN, HURST, REES, ORME, AND BROWN, PATERNOSTER ROW.

1823.

ADVERTISEMENT.

Since the Publication of the early editions of this Essay, the Author has witnessed with very great satisfaction the amendment of a large proportion of the Turnpike Roads, and some improvement of the Parish Roads. That the reformation has not been more extensive and successful, may be attributed to the error still persisted in by Trustees, of continuing the services of persons as Road Surveyors, who are not only altogether ignorant of the business they profess, but full of prejudices in favour of their own erroneous practice.

Another and a greater error has been committed lately, in several parts of the Country, and which has entirely arisen from the desire entertained of using the new method of Road making. This very dangerous error consists in employing persons who offer themselves as having been instructed in Road making on scientific principles, without due inquiry respecting their skill, industry, and moral character.

Among the many persons who present themselves to be instructed, a very small proportion acquire a competent knowledge of their profession, and this number is farther diminished by subsequent dismission for negligence, drunkenness, and dishonesty.

Of these rejected and incapable persons, great numbers are spread over the Country, soliciting employment; and many have been incautiously engaged by Trustees, without inquiry either as to their character or their ability in their profession.

Under the most favourable circumstances for the constant and vigilant control of a master, whose public credit depends on the economical and skilful performance of the work, it is difficult to keep sub-surveyors in the strict line of their duty; but it may be easily conceived how much the public must suffer from accepting the services of men rejected for gross misconduct, and placing them in situations of confidence, altogether freed from the only control capable of being exerted with effect. This error, although of recent date, has already been attended with very disastrous consequences in several places.

A practical experience of Six Years, has served to confirm the opinion of the Author, that the control of Commissioners over surveyors is altogether ineffectual; whether for direction in their active duties, or for protecting the funds of Trusts from waste and peculation. The unceasing control, and minute inspection of a person whom the surveyors know to be as much their superior in skill and general information, as in station in society, and in the confidence of the Commissioners, is absolutely necessary for the protection of the Roads. Where such control is duly exercised, good management with economy will be the result; and wherever a mistaken notion of economy shall continue to prevent the application of such wholesome and necessary control, the roads will be imperfectly repaired, and the funds dissipated.

It appears from the returns made to Parliament, that the sum annually raised for the use of the Roads exceeds the neat revenue of the Post Office; yet is this very large sum expended through the hands of persons of the lowest rank in society, under an appearance of control; which equally deceives the public and deludes the expectation of those who conduct the general business of the Roads.

Commissioners can only act with effect, as a deliberative body; and their most beneficial resolutions are rendered valueless, through want of a steady executive power. Any attempt on the part of _individual_ Commissioners to exercise this power is a still more dangerous course. The designs of the majority may thus be impeded, or thwarted by the subsequent interference of a single person.

All other branches of the public revenue are defended by the station and character of the persons, under whose care they are placed. The Legislature and the Government have wisely considered it important (with a view to economy) to purchase talents, and station, as a protection for every branch of the public expenditure; but in the case of the Roads they have miscalculated the power and effect of the controlling and directing authority. A proper comparison has not been made of the duties, or of the effect of the exertions of a body composed of unpaid and unresponsible individuals, like the road Commissioners, and those of bodies composed of Boards of Commissioners, in the pay, and responsible to the Government for the due administration of the trust reposed in them: having also proper officers equally responsible as themselves to act under their directions. The state of the public roads, the alarming amount of an increasing debt, the loose and neglected state of the accounts of the several Trusts, are the best proofs of the defects of the system, and of its comparative inefficiency.

The returns made to Parliament by the several Trusts in the kingdom (defective as they are) afford matter for serious reflection. England alone, is divided into 955 little Trusts which may be considered, in fact, as hostile to each other; while it is evident that unity of action is of vital importance among Commissioners of the same branch of the public service, for effecting the great object of their appointment. While therefore each of those small communities is liable to be biassed by individual interest or feeling, it will hardly be deemed inexpedient to recommend some central control over the District Commissioners, that may have the effect of regulating the eccentricity of their measures, as well as giving their views, in many instances, a better direction. This central control will be most beneficially established in each county, under such regulations, and with such powers as the wisdom of Parliament may deem most effectual.

A General Road Act must, in order to adapt itself to the exigences of the times, embrace a comprehensive view of the subject: and effectually remedy all the great evils which have originated in the weakness of the system, and have been allowed to grow up, through a want of attention to the altered state of the commerce, agriculture, manufactures, and general interests of the kingdom. Until the Legislature shall be pleased to enter into a serious consideration of the subject, no general and useful amendment can take place. The great debt, (exceeding at this moment Seven Millions,) will continue to increase, and improvement will still be impeded by obstacles not removeable by any other power except the authority of Parliament.

PREFACE TO THE SEVENTH EDITION.

In preparing another edition of the various papers on roads, which I have published during the last six years, it may be useful to take a slight review of the subject, and of the gradual progress of road improvement throughout the country.

That any further information should be called for, after the numerous additions made to the original pamphlet, (particularly the last communication to the Board of Agriculture,) is a convincing proof of the impossibility of conveying adequate instructions for practical purposes, by means of the press. It is, however, of the utmost importance that the _theory_ be fully understood, as from want of comprehending the original nature of the system have arisen the many fruitless attempts at imitation, which have cost such vast sums to the public.

The practical utility of some parts of the system is so obvious, that they have been acted upon in various places, without any desire of further improvement. It is uncommon now, to meet with roads repaired with large stones, or of the dangerous convex form, which was the universal custom about five years ago; but these improvements being merely grafted on the old erroneous method, have never been attended with the rapid diminution of expense, and the durable advantages which immediately result from the adoption of the entire system as recommended by me.

Those who continue to use any part of the old method of road-making, are not, perhaps, aware of the principles upon which they are acting. I have formerly remarked, that the old roads of the country were generally carried along the tops of hills in search of dry or strong ground; and it is plain that the first turnpike roads were merely attempts to open more direct communications through the country, in continuing, by mechanical means, the rocky paths, to which travellers were obliged to resort. With this view, large masses of stone were first sunk into the ground, and afterwards thick layers of broken stone strewed over them, so as, in fact, to form an artificial rock. The insecurity of this unskilful structure must be obvious. The rain penetrating through every part of the surface kept it continually in a loose state, and as it was imbedded _below_ the _ground_ water, it was constantly broken up in winter by the frost. Hence the vast sums required for the forming new roads, and the heavy and incessant expense of keeping them in a passable state. Any improvements that have been made on this plan, merely relate to the smoothness of the surface, by more carefully laying on the stones, at, consequently, a greater expense: but the original principle remains the same in every road, except those where the new system has been fully adopted. Under such disadvantages, it is not surprizing that the roads of the kingdom have not kept pace with the advancement of every other useful art. The large sums demanded for the first outlay, and the frequent failure of such speculations from the badness of the roads, and the expense of their subsequent repairs, sufficiently account for the tardy progress of road-making. From conviction of the very insufficient and expensive nature of the method in use, I was led to consider of the possibility of constructing lines of communication, capable of conveying the heaviest weights over every kind of soil, and at all seasons, upon principles purely scientific: a plan, which even in theory differs as widely from the inartificial methods of road-making hitherto practised, as the principle by which an arch is thrown over a river, differs from the heap of stones which constitutes the ford.

The actual experience of seven years, the great extent of road which has been entirely constructed according to my direction, and the unquestionable testimony of the Committees of the House of Commons appointed to enquire into this matter, have now placed the efficiency of the discovery beyond a doubt. It remains with the country to consider of the most wise and effectual mode of securing the benefit of the system.

Whoever has attentively considered the weakness and inadequacy of the present road laws, to protect the great interest at stake, must be aware of the urgent necessity for some new legislative measures, more adapted to the present state of the country. The roads are, perhaps, the most important branch of our domestic economy. The revenue collected for their support equals that of the Post-office; and any failure in executing the work, operates as a severe check upon our commerce, manufactures, and agriculture. Yet a public service of such vital importance, continues to be regulated solely by the narrow policy and limited views of the first Turnpike Act, (which were, in fact, mere experiments in legislation,) while this immense revenue is abandoned to the discretion or the cupidity of the lower orders of society.

The benefit which I have aspired to render the country, is of a twofold nature; and my labours have been as constantly directed towards the introduction of a wise and well-regulated system of management for the roads, as towards their mechanical construction. I have always expressed a conviction, that no permanent improvement could take place in road affairs, without the interference of the legislature; nor has the success attending the efforts of my family, in various places, in any way tended to weaken that opinion. The advantages of the new method of making roads are so apparent, they have not failed of attracting attention; but I have not been equally fortunate in inducing the gentlemen of the country to observe the _means_ by which _economy_ and improvement have been combined.

It is not only to the simplicity and cheapness of the new system, that the great difference of expense is owing. In every place where the system has been properly acted upon, care has been taken to place the road business on the same respectable footing as other branches of the public service; a complete executive department has been created. The inferior officers, selected from the most respectable yeomanry, are placed under the vigilant inspection of a superior, whose responsibility secures his attention, and who is not liable to be biassed by any influence in the duties of his office. The great success that has attended the adoption of this plan, under all the disadvantages of the present road laws, is an earnest of what might result from its being established on a comprehensive scale, under the authority of Parliament.

Although no measures have yet been taken for establishing any systematic plan for the management of roads, it is gratifying to observe the spirit of improvement which is extending itself over the country. This is manifest in various ways. The plan of converting the pavements of streets into stoned roads, was introduced into the Bristol district about six years ago; and it may reasonably be expected, that pavements will very soon be nearly superseded by the more convenient, safe, and economical substitute of stoned roads. Of the superior convenience of roads, there can be no question; and all the minor objections which have been started can be so easily obviated, that a very little reflection will be sufficient for any candid mind. The inhabitants of towns are generally apprehensive that roads will be less commodious for foot passengers than pavements: but (if proper care be bestowed on cleaning and watering) a road made of broken stone will be found more eligible than such pavements as those of London. In some towns, where the principal streets are turnpike roads, the commissioners have caused them to be made of materials broken very small, which, when skilfully laid, form a smooth, firm surface.

The great difference between the cost of a road, and even the worst London pavement, would enable the city to bestow such care on the cleanliness of the carriage ways, as would allow the inhabitants to enjoy all the advantages of smooth road, with even increased comfort to the foot passenger.

TO THE GENERAL TREASURER, THE TREASURERS OF DIVISIONS, AND THE OTHER COMMISSIONERS FOR THE CARE OF THE TURNPIKE ROADS IN THE BRISTOL DISTRICT, TO WHOSE FIRMNESS AND PATRIOTIC ZEAL IN THE DISCHARGE OF THEIR DUTY, THE KINGDOM IS INDEBTED FOR THE FIRST EXAMPLE OF THE PRACTICE OF A NEW AND EFFECTUAL SYSTEM OF IMPROVEMENT IN THE REPAIR OF THE ROADS, AND IN THE ADMINISTRATION OF THE FUNDS UNDER THEIR CARE; =THESE REMARKS= ARE MOST RESPECTFULLY DEDICATED, AS A TESTIMONY OF THE ESTEEM AND GRATITUDE OF THEIR

OBLIGED AND OBEDIENT SERVANT,

=THE AUTHOR=.

INTRODUCTION.

The present very defective state of the Turnpike Roads and Highways in the United Kingdom, and the continual and apparently unlimited increase of the Toll Duties, are the considerations, which have given rise to the publication of the following remarks.

Of the value of the information contained in them, the intelligent reader will be the most competent judge; the author can only venture to assure him, that the few facts brought forward in the course of the work have been most carefully authenticated; that the opinions advanced are the result of much thought, and patient investigation; that whatever may appear theoretical, has, for the most part, been already reduced to practice; and that where practice has been wanting, a long experience of the evils arising from the present system, and not the mere love of innovation, has been the motive for the suggestion of the remedies proposed.

These, however, the author gladly submits to the good sense and candour of the public; only requesting, in the words of a celebrated writer, that whoever favors him with a perusal, will not judge by a few hours reading of the labours of nearly thirty years.

In the following chapters, the subject of Roads will be considered under three principal heads:

THE MODE OF MAKING ROADS;

THE COMMISSIONERS, AND OFFICERS EMPLOYED UNDER THEM, FOR THIS SERVICE,

and

THE CARE OF THE FINANCES:

Which has appeared to the Author the most clear and comprehensive arrangement.

_REMARKS ON ROADS._

PART FIRST. _THE MODE OF MAKING ROADS._

The modes of making and repairing Roads are so various in the different parts of the kingdom, that it would be an endless task to attempt a particular account of each. It may, however, be possible to give a general idea of them, according to the materials produced in each part of the country.

In the neighbourhood of London, the roads are formed of gravel; in Essex and Sussex, they are formed of flint; in Wilts, Somerset, and Glocester, limestone is principally used; in the North of England, and in Scotland, whinstone is the principal material; and in Shropshire and Staffordshire, large pebbles mixed with sand.

Excellent roads may be made with any of these materials.

The gravel of which the roads round London are formed is the worst; because it is mixed with a large portion of clay, and because the component parts of gravel are round, and want the angular points of contact, by which broken stone unites, and forms a solid body; the loose state of the roads near London, is a consequence of this quality in the material, and of the entire neglect, or ignorance of the method of amending it.

A more careful examination of facts connected with the roads round London, has discovered several other causes, from whence proceeds the defective state of these roads. The greatest appears to be, the division of the roads into so many small Trusts, which precludes the possibility of any extended plan of operations, for the benefit of the whole. Before any one road round London can be properly reformed, and all wasteful expenditure restrained, a comprehensive view of the local situation of the whole district will be requisite.

Another great impediment to improvement, arises from the laws and regulations, which prevent a supply of good road materials, of several kinds, being brought to London by water, and landed in different places, convenient for the roads. Were these restrictions removed, as far as concerns stone, flint, or any ballast for road-making, London is so favorably situated for water carriage by the river, and by the canals connected with it, that a supply, equal to the wants of all the roads in the vicinity of London, might be obtained at a reasonable rate, and of good quality, so as to render the use of the bad gravel round the metropolis no longer necessary.[1] But this measure, to be performed in an economical, and efficient manner, must be done upon an extended scale; it must become one interest, directed by one select body of men of weight, ability, and character.

Footnote 1:

This must not be understood as conveying an opinion, that a good road may not be constructed with the London gravel, properly prepared and applied. The road at Reading, in Berkshire, has lately been made perfectly smooth, solid, and level, with a gravel inferior to that of London, and at less than it formerly cost. Carriages make no impression on this road, and it has remained good in all changes of weather. Nevertheless, a means having been discovered, by diligent enquiry, for importing flints, from a distance, the Reading road will, in future, be repaired with flint, at half the expence required to prepare the gravel of the neighbourhood.

A road near London may be made as smooth, solid, and easy for cattle to draw carriages over, as the road near Bristol; and the London road _so made_ will last longer, and consequently be less expensive than the Bristol road, because the materials which may be obtained are more durable, and may be procured at less expence.

Flint makes an excellent road, if due attention be paid to the size; but from want of that attention, many of the flint roads are rough, loose, and expensive.

Limestone, when properly prepared and applied, makes a smooth, solid road, and becomes consolidated sooner than any other material; but from its nature is not the most lasting.

Whinstone is the most durable of all materials; and wherever it is well and judiciously applied, the roads are comparatively good and cheap.

The pebbles of Shropshire and Staffordshire, are of a hard substance, and only require a prudent application to be made good road materials.

On the other hand, the Scottish roads, made of the very best materials, which are abundant and cheap in every part of that country, are the most loose, rough, and expensive roads in the United Kingdom, owing to the unskilful use of the material.

The _formation_ of roads is defective in most parts of the country; in particular the roads round London, are made high in the middle, in the form of a roof, by which means a carriage goes upon a dangerous slope, unless kept on the very centre of the road.

These roads are repaired by throwing a large quantity of unprepared gravel in the middle, and trusting that, by its never consolidating, it will in due time move towards the sides.

When a road has been originally well made, it will be easily repaired. Such a road can never become rough, or loose; though it will gradually wear thin and weak, in proportion to the use to which it is exposed; the amendment will then be made, by the addition of a quantity of materials prepared as at first. As there will be no expense on such road, between the first making and each subsequent repair, except the necessary attention to the water-ways, and to accidental injuries, the funds will be no longer burdened with the unceasing expenditure, at present experienced, from continual efforts at repairing, without amendment of the roads.

There cannot be a doubt, that all the roads in the kingdom may be made smooth and solid, in an equal degree, and to continue so at all seasons of the year. Their durability will of course depend on the strength of the materials of which they may be composed, but they will all be good while they last, and the only question that can arise respecting the kind of materials, is one of time and expence, but never of the immediate condition of the roads.