I.M.E.S.A.

Municipal Guidelines

SECOND
Edition MG 1
GUIDELINES
FOR DESIGN, CONSTRUCTION AND
MAINTENANCE OF LOW COST ROADS
AND ASSOCIATED DRAINAGE

FOR FURTHER INFORMATION PLEASE CONTACT

J PIETERSEN TEL. (031) 7182404
THEKWINI MUNICIPALITY
P O Box 244
Pinetown 3600

APRIL 2006

Edition MG 1. pp 1 18, Durban, South Africa, 2006

 GUIDELINES FOR DESIGN, CONSTRUCTION AND
MAINTENANCE OF LOW COST ROADS AND
ASSOCIATED DRAINAGE

CONTENTS

Chapter Description
Page

1. INTRODUCTION ...................................................................... 1

2. SOCIO-ECONOMIC CONDITIONS.............................................. 2

3. ROAD CATEGORIES ................................................................ 2

3.1 Minor arterials ...............................................................................3
3.2 Residential Access Roads ............................................................3

4. SUBGRADE CONDITIONS ........................................................ 4

4.1 Geotechnical Investigation............................................................4
4.2 Material Depth ..............................................................................5
4.2.1 Minor Arterials.......................................................................5
4.2.2 Residential Access Roads ....................................................5

5. GEOMETRIC ROAD DESIGN..................................................... 5

5.1 Road Cross Section ......................................................................7

6. PAVEMENT DESIGN ................................................................ 9

6.1 Minor Arterials...............................................................................9
6.2 Residential Access Roads ..........................................................10

7. STORMWATER DRAINAGE DESIGN ........................................ 10

7.1 Stormwater Drainage Design......................................................10
7.2 Return Period..............................................................................14

8. QUALITY CONTROL............................................................... 14

9. SAFETY ................................................................................ 15

10. ENVIRONMENTAL ................................................................. 15

11. ROAD AND STORMWATER ASSET MAINTENANCE .................. 15

12. REFERENCES....................................................................... 17

13. ACKNOWLEDGEMENTS......................................................... 18
1. INTRODUCTION
The purpose of this document is to provide municipalities with guidelines for
design, construction and maintenance of low cost/volume roads and
associated drainage.

Low volume roads are defined as minor arterial or residential access roads
which carry less than 500 vehicles per day, including up to 20 % commercial
vehicles and non-motorized traffic.

This document is not intended as a design manual, rather it seeks to collate

available design guidelines with experience gained over years into a set of
guidelines which are appropriate for given circumstances taking cognizance
of geographical, geotechnical or socio-economic factors.

The emphasis is on the improving of existing conditions in informal

settlements or townships, thereby improving quality of life, in a most cost-
effective manner.

It is also important to ensure that projects are implemented as part of a

phased development; i.e. very basic improvements can be implemented first,
with further enhancements added as the desired level of service increases
when more funds become available.

Low cost roads should be constructed to levels where they can effectively be
upgraded. The emphasis of the Municipality should be to optimize their
expenditure on roads, drainage and maintenance over a number of years, in
accordance with a strategic road infrastructure maintenance management
system or plan. (An example of such a plan, referred to as RIMMS, is
available from the eThekwini Municipality on request from the Maintenance
Management). ( 1 )

Such a plan should also include planned improvements to the road drainage
as to reduce risk of flooding of properties which could result in damage to
property and loss of life.

The provision of services to underprivileged communities is a rewarding task,

but must be coupled with a vision of how the improved standard of life can
be maintained.

It is therefore imperative to have a strategic road infrastructure maintenance

management system or plan, which will protect the investment as well as
provide local employment and a sense of ownership to the community.

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2. SOCIO-ECONOMIC CONDITIONS
These guidelines are supportive of sustainable poverty alleviation
programmes for example the Expanded Public Works Programme
(EPWP), structured in the interests of the poor.

A substantial amount of the overall annual budget allocation must be

channeled towards the implementation of the EPWP to:

Create employment opportunities for the unemployed

Develop skills within communities through EPWP on-the-job skills

programmes

Capacitate Small Medium Macro Enterprises (SMMEs) to execute

EPWP work within communities by facilitating the transfer of
sustainable technical, managerial and financial skills.

The use of Labour Intensive methodology in construction and

maintenance will significantly reduce poverty within a City or Town and
give access to Government Grant Funding.

Since not all projects are 100% conducive to labour intensive construction
methods, each should be assessed on its merits and justification provided
if it is considered that labour intensive construction methods cannot be
implemented on a particular project.

3. ROAD CATEGORIES
For the purpose of this document, two street categories are considered as
basic access streets:

Minor arterials (Bus routes)

and

Residential Access roads

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The following table serves as a guide to the road design:

TYPICAL ROAD CHARACTERISTICS ( 2 )

Minor Arterials Residential Access Roads
Description and Low Order Mixed Pedestrian and vehicle access route
Function Pedestrian and
Vehicle Route
Level of service Moderate to Low Low
(LOS)
Traffic (vehicles >75 < 500 <75
per day)
Traffic (no. of <0.3x10^6 per lane
E80s)
Standard Access Streets Basic Access Streets
Un-paved
Paved Un-paved Paved Gravel Earth Tertiary
Access Access Basic Basic Basic Ways
Streets Streets Access Access Access
Streets Streets Streets
Typical Width 6m 7m 3-4m 4-5m 4-5m 4-5m

Table 3.1: Typical Road Characteristics

3.1 Minor arterials

Minor arterials carry medium traffic volumes of delivery vehicles, busses, taxis
and privately owned vehicles. The width of the road should be 6 7 m and
depending on the pedestrian requirements, a sidewalk could be added for
additional safety.
The road should be constructed to at least a gravel standard and will require
regular maintenance in order to ensure comfortable driveabilty and to
minimize wear and tear to vehicles.

3.2 Residential Access Roads

These roads lead off the minor arterials and provide basic access to
residential erven. They carry only occasional traffic and therefore can be
divorced from the normal traffic classes used for pavement design purposes.

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 The width of the access roads can be reduced to 3m. Should the road length
exceed 80 m, passing bays should be added to the road width at 50 m
spacing.
The roads are normally built to gravel standard, as surfacing cannot be
justified. However should the road be used as drainage medium, effective use
of rollcrete can be made (see Section 5).

There is an option to do nothing during the first phase of a township

development. In this case it will be better to leave the insitu vegetation in
place in order to prevent erosion. No form of stormwater control should be
implemented.
At this stage it is better to retain a sheetflow scenario rather than to
concentrate flows of stormwater which can result in damage to property.

Gravel of roads and the creation of a stormwater control system can be

undertaken in subsequent years when funding is available.

4. SUBGRADE CONDITIONS

4.1 Geotechnical Investigation

Despite budget constraints, it is very important to undertake geotechnical

investigations in order to accurately determine subgrade conditions.

The lower or more variable the quality of the insitu subgrade materials, the
more important it is to ensure that the designer is fully aware of the
conditions. A high water table combined with very plastic material can result
in very expensive subgrade costs as additional layers will be required.

Despite the fact that the geotechnical conditions are known at the design
stage, there is still a high risk of new low cost road failing. Since these roads
have relaxed layerwork material requirements, it is implied that the
percentage of the roadworks can be expected to have problems and provision
needs to be made for this in the strategic road infrastructure maintenance
management plan.

It is thus imperative that a thorough understanding of the geotechnical

conditions fully addresses current and future costs and the likely maintenance
requirements.

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 4.2 Material Depth

The term material depth is used to denote the depth below the finished road
level to which the soil characteristics have a significant effect on the
pavement behaviour.
Below this depth it is assumed that the strength and density of the soils are
not significantly affected by the applied loads.

It is important to note that if the road is built in stages, the material depth must
be achieved by the time the road is surfaced.

4.2.1 Minor Arterials

The material depth accepted for Minor Arterials is 600 mm, which refers to the
thickness of the layers which are constructed of material which is better than
G10 quality. ( 3 )

4.2.2 Residential Access Roads

The material depth accepted for Residential Access Roads is 300 mm, which
refers to the thickness of the layers which are constructed of material which is
better than G10 ( 3 ) quality.
This is achieved by scarifying and re-compacting the insitu material if the
material is of G 9 ( 3 ) quality or better. If the insitu material do not make the
specification of a G9, an additional layer will be required as a selected
subgrade layer.

5. GEOMETRIC ROAD DESIGN

The functional classification of basic access streets indicates that traffic
volumes are so low that the traditional design guidelines are not applicable in
most cases.

Non-traffic related factors such as layout planning, stormwater management

and drainage, climate, environment, topography and in-situ materials have a
major influence on the design of basic access streets.

Figures 5.1 ( 2 ) below illustrate the decision process for the design of basic
access streets. If the decision is taken not to pave a basic access street,
attention should be paid to erosion protection, the quality of the insitu material
and the quality of the wearing course (if required).

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 Drainage and
layout planning

Design of basic
access streets

Erosion problems

Need erosion Yes No Is in-situ material

protection acceptable?

No Yes

Is dust palliative Design gravel Insitu base acts as

on gravel thickness wearing course
adequate?

Select surfacing Use dust palliative

type

No Yes

Base, subbase and subgrade meet material specifications

Fig 5.1 Flow diagramme for decision process

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Erosion-prone in-situ materials should be identified.

The length of erosion- free in-situ material can be determined if the gradient
and basic material information is available. If erosion problems are identified,
erosion protection must be provided. Surface stabilizers may be considered in
this regard.
As shown in table 7.1, in-situ material can be used without a surfacing if it
meets the appropriate material standards for basic access streets. The gravel
used should comply with that as specified in TRH20 ( 5 ).

A gravel road may be regarded as a long-term facility or as an interim step

towards a paved street. This will influence the level of service with regard to
stormwater facilities and geometric considerations.

5.1 Road Cross Section

Typical cross sections of the road profiles for the two road categories of road
are shown in the figures below.

Minor arterials

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Residential Access Roads

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6. PAVEMENT DESIGN
The traffic volume and loading will determine the pavement design. Use a
Pavement Design Engineer if in doubt.

6.1 Minor Arterials

These roads can be constructed in two stages as funds become available.

Dry / Moderate climate Wet climate

Stage 1 150 mm G 7 compacted to 150 mm G 6 compacted to
95 % Mod 95 % Mod
On AASHTO density AASHTO density
150 mm G 9 compacted to 150 mm G 8 compacted to
93 % Mod 93 % Mod
On AASHTO density AASHTO density
150 mm G 10 insitu 150 mm G 10 insitu
compacted to 93 % compacted to 93 %
Mod AASHTO Mod AASHTO
density density
Stage 2 Seal Seal
On on
150 mm G 5 compacted to 150 mm G 4 compacted to
98 % Mod 98 % Mod
AASHTO density AASHTO density

Table 6.1 Typical Pavement design for Minor Arterials

The availability of the different quality materials will determine the final pavement
design

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 6.2 Residential Access Roads

Likewise these roads can be constructed in two stages as funds become

available.

Stage 1 Do nothing, do not strip vegetation or create earthdrains

Stage 2 125 mm Rollcrete if road to be used as drainage channel
Or
150 mm G 7 compacted to 93 % Mod AASHTO density

On
150 mm G 10 insitu compacted to 93 % Mod AASHTO
density

Table 6.2 Typical Pavement design for Residential access roads

7. STORMWATER DRAINAGE DESIGN

7.1 Stormwater Drainage Design

The prime function of an urban stormwater drainage system is to collect the

runoff from the roads and properties and to convey this flow back to the
natural drainage system.

New townships must be designed by the Town Planner and the Engineer for
effective low cost servicing which suits the natural topography. Township
layouts must not include residential or business sites which are situated on
the low side of watercourses or within the flood plains but rather convert these
areas as Public Open Spaces.

Structural measures include the installation of concrete channels, stone

pitched channels, rectangular channels, pipe culverts, dished concrete road
crossings, including road surfaces as a drainage channel. The most cost-
effective system is in the latter case, by retaining the stormwater as road
surface flow until it can be returned to the natural water course.

Type of low volume traffic roads for consideration of road surface flow, are:

- Gently sloping contour road which control slow flowing stormwater without
the need for special protection;

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- Steep roads down the contour, designed in rollcrete which can handle the
flow within the surfaced roadway without the damage of scour or erosion.

The most effective control of the flow is gained by ensuring that the crossfall
of the road runs counter to the slope of the natural ground.

Once the capacity of the surfaced road has been exceeded, it becomes
necessary to divert the flow into a formal piped or surface drainage system.

With cost constraints, surface drains such as stone pitched or concrete

trapezoidal drains present a practical alternative to subsurface piped drains.

Rectangular channels can be cost-effective, utilize minimal space in the road

reserve and allow unhindered access to properties when properly designed.

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A suggested guideline range of road gradients is given below.

ROAD SURFACING GRADIENTS

GRAVEL 0 3%
SURFACE TREATMENT 3 5%
PREMIX (25 mm) 3 10%
PREMIX (40 mm) 5 12%
CONCRETE NO LIMIT

Table 7.1: Suggested road surfacing on various grades

For unpaved roads, side drains are typically used with concrete dishes at
intersections to convey water across the road.

Where steep longitudinal gradient of a side drain occur and the nature of the
insitu material needs to be carefully analyzed to determine the nature of scour
protection that is required.

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13
 The table below provides the scour velocities for various materials and
guidelines on the necessity to line or pave channels.

Material Allowable Max Gradient Gradient At Gradient Where

Velocity For Unlined Which Check Lined Channel
Without Earth Side Drains Can Required (%)
Scouring Drains (%) Be Used (%)
Fine Sand 0,6m/s 2% 2 10 10
Loam 0,9 2% 2 10 10
Clay 1,2 5 5 - 10 10
Gravel 1,5 5 5 10 10
Soft Shale 1,8 7 7 10 10
Hard Shale 2,4 N/A N/A 10
Hard Rock 4,5 N/A N/A 10

Table 7.2: Scour Velocities for Various Materials and Guidelines for use
of Scour Protection.

7.2 Return Period

The criteria for the design of stormwater drainage systems of Minor Arterials
and Residential Access Roads should use the recommended return periods
for drainage design as follows:

RAINFALL DATA FOR RETURN PERIODS

Normal design of system/side drains 1 : 3 year
Design of critical elements/pipes at low points 1 : 10 year
Prevention of catastrophic damage 1 : 50 year

Table 7.3 Design return periods

8. QUALITY CONTROL
The normal quality control systems as specified in SABS 1200 should apply
for the construction of low volume traffic roads.
For roads with a gravel wearing course, TRH 20 Guidelines for the structural
design, Construction and Maintenance of Unpaved roads ( 5 ), shall apply.

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9. SAFETY
The Municipality must comply at all stages with the Occupational Health and
Safety Act 85 of 1993 as amended and Regulations. ( 4 )

A copy of this document must be available at all times.

10. ENVIRONMENTAL
The Municipality must comply with the latest act for Environmental and
Conservation being Act 73 of 89 as amended.

11. ROAD AND STORMWATER ASSET MAINTENANCE

Section 63 of the Municipal Finance Management Act (MFMA) pertaining
to Asset and liability management states that:

1) The accounting officer of a municipality is responsible for the

management of:

a) the assets of the municipality, including the safeguarding and

maintenance of those assets; and
b) the liabilities of the municipality.

2) the accounting officer must for the purposes of subsection (1)

take all reasonable steps to ensure:

a) that the municipality has and maintains a management,

accounting and information system that accounts for the
assets and liabilities of the municipality;
b) that the municipalitys assets and liabilities are valued in
accordance with standards and General Acceptable Municipal
Accounting Practice (GAMAP); and
c) that the municipality has and maintains a system of internal
control of assets and liabilities, including an asset and
liabilities register, as may be prescribed.

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 All the assets must be listed in an Asset Register and the Maintenance
Management Plan must include:

Risk assessment
Use and condition of Asset
Value assessment and depreciation.

A typical flow diagram of a plan is shown in Figure 11.1 below

ASSET MANAGEMENT CYCLE

Asset Purchase
Asset Renewal / Record Asset in
Replacement / a Register
Disposal
Acquire
Risk
Service Delivery Assessment
Asset
Management Financial Aspects
Dispose Maintain
Assess use and
Budget for each condition
asset Asset
Maintenance Assess Asset
Plan Value

Table 11.1: Asset Management Cycle

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12. REFERENCES
1. Road Infrastructure Maintenance Management System (RIMMS) available
from the Deputy Head, Roads Provision Ethekwini Municipality
031-300 2911

2. Guidelines for Human Settlement Planning and Design, CSIR Building

and Construction (Red book)

3. National Institute for Transport and Road Research(1987): Guidelines for

road construction materials, TRH 14, CSIR Pretoria

4. Occupational Health and Safety act 85 of 1993 and Regulations, Third

Edition, LexisNexis Butterworths

5. CSRA (1990) The structural design, Construction and maintenance of

Unpaved roads Draft TRH 20, CSRA

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13. ACKNOWLEDGEMENTS

The document was compiled by the KZN Roads, Stormwater & Transportation
working group.

J Pietersen eThekwini Municipality Chairman

Z Mller eThekwini Municipality
B Govender eThekwini Municipality
L Cloete MCJ Engineers Consultant

Draft documentation Argus Gibb

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