Contents

2.

The process of road planning .......................................................................................................... 2

How to plan proper establishments .................................................................................................... 3
Features of a proper plan ................................................................................................................ 3
Ensuring quality during the planning process ................................................................................. 9
Social participation (involving the community)............................................................................. 13
The planning process ......................................................................................................................... 16
Elements of the planning process ................................................................................................. 16
Planning steps in Hungary ............................................................................................................. 19
Functional planning ........................................................................................................................... 23
Basic principles of functional planning .......................................................................................... 24
Functional planning in Hungary..................................................................................................... 27

2. The process of road planning

The challenge of road traffic is to provide an efficient and safe transport
infrastructure which preserves and improves the social, natural and manmade environment.
Typical tasks of traffic planning:
Establishing new traffic establishments or redesigning existing ones
Establishing new traffic services or reshaping existing ones
Sorting out traffic problems and bottlenecks
Defining traffic strategies
In this chapter we learn the preconditions of creating a successful plan. We
review the planning process and the plan types typically applied in Hungary.
We take a closer look at the aspects and the Hungarian practice of functional
planning.
This chapter consists of three lessons:
Lesson 1 presents the features and the planning of proper
establishments. It expresses the importance of flexibility and
creativity.
Lesson 2 deals with the planning process and the plan types belonging
to the process steps
Lesson 3 shows the fundamentals of functional planning and the
functions of public road traffic. It explains the role of functional
classification. It shows how the external effects influence the
functions of roads and how todeal with them. The Hungarian practice
will also be described.
The lessons can be completed by approx. 60 minutes learning and exercises
and the knowledge can be deepened by 30 minutes revision. So the whole
chapter takes 3-4 hours to learn.

How to plan proper establishments

At present day it is not good enough to base our plans on technical aspects
only. The establishments must be in harmony with the complex environment
surrounding them. In order to createproper plans we have to discover the
expectations towards the establishment, the effects of the new development and
we also have to understand the basic principles of creating proper plans. It is
important to involve the related society as their opinion and demands have an
influence on the final implementation.
During the lesson we learn to differentiate good and bad plans, we will
examine the role of goals and problems. We get to know the elements of the
successful road planning process and we clarify why it is important to involve
the society.

Features of a proper plan

Please take a look at the below pictures! What do You think, which
configuration is good or bad? Why?

You cant just answer the question. The evaluation highly depends on the
environment of the establishment. The environments and functions of these
two establishments are very different. They can both be good and bad. But can
we give an exact answer here when we evaluate two configurations at the same
place?

Please look at the below pictures taken about Rkczi street in Budapest!
Which one do You think is right and which one is wrong? Why?

Honestly You cant just answer this question either. The judgement of the
configuration depends not only on the environment but also on the system of
correlations.
When planning an establishment the designer has to find the balance between
several aspects, effects and interests. All plans are individual, and every time
it is a different combination of geographic features, social interests, tasks,
opportunities and demands. The task is to find the balance between fulfilling
the demanded development and safely integrating the new establishment into
the human environment. Aspects to be considered when planning a road:
safety
durability
low operating cost
man-made and natural environment
environmental, esthetical, historical and social effects
availability of alternative transport options
It is important to know the difference between good and bad plans.
Good plans:
satisfy the safety and mobility demands
preserve and protect the environmental and cultural objects surrounding the
traffic establishment
Bad plans:
are not aligned with their environment
affect important natural and human resources

Figure 1. : Example for a road in harmony with its environment, made of local material

Figure 2. : Example from Montana, a road very unfamiliar to its environment

We can only succeed in planning the proper road establishment

- in harmony with the natural and social environment
- satisfying the mobility and safety demands
if we know the environmentali correlations and we acknowledge the demands,
the problems and the possible solutions.
The Goals summarize all the social, natural and traffic demands that the new
establishment is expected to satisfy. Important goals:
- economic efficiency
- environmental protection
- enjoyable streets and neighbourhoods
- safety
- equality and social acceptance
- contribution to economic growth
- equality between age groups
Goals should be clearly defined. It is a common mistake to handle the goals to
generally which makes them undefinable and unachievable as they do not
guide us into actions. If we define clear goals then
- we get real clues to recognize the problems waiting for solutions
- we can analyze how the possible solutions fit into the system of
environmental correlations

- during implementation we can supervise the output.

Goals have three levels:
General goals containing the longterm advantages resulting from the
project implementation. They are general and not limited to the project
itself.
Project goals containing the effects expected directly from the project. these
are the goals the project is launched for.
Project results, the direct results arising from the project activities.

The goals are often abstract so the success rate is difficult to measure.
Indicators help to measure and track the goals and subgoals. Indicators are
measurable features, they transform the complex information into one single
figure. Every specified goal is to be paired with an indicator which expresses
the implementation
There are three main types of indicators:
Outputindicators: they measure the output, the result on a nominal scale
(kn, ton, quantity)
Resultindicators: they measure the projects direct effects, the
achievements of the expected goals. Preferably previous stage current
stage indicators, expressing the changes aspired by the project.
Effect indicators: they measure the projects longterm effects and their
contribution to the social goals.

INDICATOR
TYPE

OUTPUT
INDICATOR

RESULT
INDICATOR

EFFECT
INDICATOR

APPLIED
INDICATOR

DEFINITION

MEASUREMENT

Newly constructed highRailway

speed railway infrastructure km, network
infrastructure
coverage %

Time saving

Employment

Reduced running time

passenger
minute, ton
minute

Absolute or
Jobs created or saved by the relative number
of jobs
project

Figure 3. : Example for the indicator types at railway infrastructure development.

It is a common problem that You can not achieve all goals because they
conflict each other. For instance in many cases You can not improve the
accessibility without harming the environment. The solution is a compromise
between the different demands by setting priorities in order of importance. The
priorities are set based on political aspects but the decision maker is supposed
to consider the related opinionsii.
Once the goals are set, the next step is the problem mapping. This is an
important step as the real solutions are best based on solving the problems. It
is key to find the problems rootcauses because eliminating them is the only
way not to encounter the problem againiii.
We consider the folling cases as problems:
unsatisfied demands and missing preconditions to satisfy the demands
the difference between the actual and the desired situation
unexploited opportunities
losses

The problems and demands can be defined based bot hon the actual or the
desired situation. When defining the problem we also have to see who suffers
the most from the problem. There are more ways to discover them:
consulting the related personneliv
analysis based on factsv
observationvi
The identified problems are visualized on a specially designed problem list
called problem map. This problem map also expresses the priorities in a table
format. An alternative visualization method is to show the problems in a matrix
of problem areas and aspects. The latter has the advantage of discovering the
synergies between the problems.
Nr.

What?

Who?

With whom?

When?

At what cost?

Problem

Who is
responsible for
the solution?

Who else is
interested in the
solution?

In what
timeframe is the
solution
available?

What is to be
considered?

1.
2.
Figure 4. : Possible structure of a problem map

A Problem area

B Problem area

(par.ex. control)

(par.ex. infrastructure)

Aspect 1 (par.ex. passengers)

list of problem descriptions

list of problem descriptions

Aspect 2 (par.ex. operator)

list of problem descriptions

list of problem descriptions

Figure 17. : Problem map structure in a matrix of problem areas and aspects

The goals and the problems are two sides of the same coin starting with either
of them we will come to the same outcome. The goals define the results
expected from solving the problems, this often makes them abstract. A strategy
based on a precisely defined problem list is easier to understand and the
question How do we no there is a problem? is easier to answer.vii

PROBLEM

GOAL

Can I sleep?
Reduced noise
disturbance
Figure 5. : Relation between goals and problems.

By defining the goals and problems we actually define the system of

correlations in which we have to integrate the new establishment.
We can rephrase the initial definition of proper plans like this: proper plansdeal
with the problems and implement the goals.
Ensuring quality during the planning process
Planning is the process of selecting the right elements, dimensions and
solutions for the final configuration. Standards are available for defining the
geometric principles which further define the roads physical features. Of
course planning is a complex task, it means much more than picking
parameters from different tables and applying them on a mechanical way.
Decision making skills and experience have an important role in creating
proper plans.
In order to handle individual demands the plan needs to contain certain
flexibility. Most standards provide this kind of flexibility with their tolerances.
Most geometric parameters are based on standards with a minimum/maximum
value so the planner can adjust the plan to the environment and the
circumstancesviii.
Sometimes this flexibility still provides not enough room to avoid significant
environmental consequencesix. In such cases You can apply for an exceptional
project release free from the standard and utilize solutions which are normally
prohibited. But these exceptions must be well reasoned and explained and the
authorities must be convinced that there are no other options. Furthermore You
always have to examine the deviations effects on the traffic outcome.

Flexibility also contains the option of revising previous planning decisions.

This is not always possible and it can generate a lot of extra consumption of
time and money. The expected complications must be balanced with the
possible advantages.
Keeping the rules and sticking to the standard solutions are not enough to
create proper plans!
The planning process must be managed on system level. An establishment
must be planned as part of a larger system with defined roles and functions. A
harmonized plan will implement the balance between different local and
network aspects.x
Previously the decisions about traffic and settlements were made by appointed
decision makers based on suggestions from specialists.
Nowadays this is much more complicated. The task is to find the balance and
safely integratethe road traffic demands with the surrounding natural and manmade environment.
Roads must be planned in harmony with the natural and social environment.
One precondition for that is an open planning process which allows creative
mindset and social participation.
You need a basic concept in order to create a proper plan. The planning concept
sets the framework and helps You to stay on track. All elements must be
created as part of the general conception. The most important ones:

cross-section profiles
relation between sketching and landscape
objects of art
road elements

The design scale is an important factor of the basic principle. Drivers sense
their environment not like pedestrians, so the design scale affects the roads
function and integration with special influence. The road width You sense has
the greatest impact on the road scale, the wider You sense the road the faster
the vehicles move. The planning methods below can reduce the sensed width
of the road just as the sensed scale:
horizontal and height sketching,
cross-section profile elements,
other elements, plants, buildings, parking or noise-absorbing walls
By chosing the proper planning methods You can create the road in harmony
with its environment. All details must be considered (aesthetic appearance,

compatibility with social values) as a key part of the planning process with the
need for a design team covering all planning aspects.
A successful road planning process contains the following elements:
continuous social participation from the beginning
using scenic plans to inform the society
design team covering all planning aspects and areas
flexible and creative planning solutions
The planned road establishment is always individual as the area, the expected
features, the social values, the tasks and the limitations always vary. There are
no typical plans and the planner must find the balance between the different
aspects again and again, independently from the size of the task.
We can judge the plans quality and niveau by knowing the exact goals. The
indicators measure how much the goals are achieved so during the evaluation
we check whether the indicators target values are met or not. If they are then
the plan is a proper one.xi Unfortunately we do not always find a solution free
of compromises. In these cases we have to compensate the negative effects, in
other words we have to compensate the damage.xii
Of course You dont have to limit the plan to one version only. When working
out the different versions it is important that they are supposed to be different
not just inthe parametersxiii but also in the general approach. They should
introduce the whole scale of solutions, par.ex.:
hard building interventions and soft traffic control measures
system-level solutions (both local and network)
positive solutions providing a supply and negative solutions with forbiding
effects.
In case of longterm plans the certain versions might differ in both the methods
and the future visions.
Making the final decision which version to chose assumes the knowledge of
their affects and consequences. The solution we are looking for
- satisfies the safety and mobility demands best
- preserves the surrounding natural and cultural values best.
For such a comparison the fundamental basis consists of the goals and the
related indicators.
During the evaluation we define the degree of the effects belonging to the
indicators. By transforming these values to an unified scale we gain the score

belonging to the indicator (the goal)xiv. We have to do the transformation in a

way that the scores clearly display the differences.xv
Its a rare occasion to find a solution which is optimal from all aspects. The
different versions correspond with certain aspects and conflict with others. In
order to pick the right version we have to sort the aspects by order of
importance.
However it is hard to judge the importance of the aspects. Which is more
important and to what degree: the construction costs or the degree of the noise
disturbance? The latter is most probably more important in a crowded city than
in a remote desert.
We can be more successful in setting the priorities between the aspects if we
set up effect groups.
We arrange the similar goals and indicators into the effect groups. Based on a
specialists estimation we define the correlation and the relative importance of
these goals and indicators.
Typical effect groups:
economic, par.ex. construction costs, transportation costs, economic
figures
traffic management, par.ex.capacity, service level, travelling time
traffic safetyi, par.ex. accident figures
environmental, par.ex. noise disturbance, aesthetic effects, natural interests
The relation between the effect groups is defined by weighting based on
specialists estimation.
Each effect group has a score. By summing these scores up by the weights we
get the final score of the plan version. Based on the scores we can prioritize
the plan versions. Using this procedure we can ensure the relative
compatibility, in other words we defined the right degree of importance for
each aspect.
This evaluation enables us to estimate the importance of the individual
problems and further develop the applied technical solutions. With the help of
this procedure we can analyze the pros and cons of each plan version and we
can create an order of evaluation aspects, proposing the final plan version in
the end.

However the decision makers judge the importance of the effect groups
differently. The weighting of the effect groups is in fact a political issue but

we have to influence it somehow. If we did not then the cheapest plan version
would usually win although we know it is not always the best one.
How can we handle this? Besides the weighting based on the specialists
opinion we have to use other weightings as well. We pick an effect group,
increase its weight and reduce the weight of the other effect groups with the
same degree. We calculate the scores again and set the new priority of plan
versions. We repeat the procedure with each effect group.
What is this good for? In this case we offer the decision maker a ready-made
solution independently from his preference of aspects. If he is mostly
interested in the costs, we show the priority for which we gave the cost effect
group the highest weight. This way we ensure that the decision makers
preferred aspect is highlighted while the other aspects are included in the
judgement.

Social participation (involving the community)

In order to define the planning environment we have to involve the related
personnel, this is what we call social participation. This should happen at the
beginning of the planning process when the plans can still be easily modified.
The result is a faster planning process with less complications.

The related organizations or groups of people must be found by ourselves.

There are some noisy groups who try to make their opinion look important but
there are also groups or organizations whose existence is not publicly known.
It is our responsibility to find and involve those who have a valid reason to
take part in the procedurexvi. This goal is served by the effect study which is
examining who is to be involved as social participant.
The social participation has many levels depending on the progress stage of
the planning process and the involvment level of the social groups:
providing information
consultation, clarification of open points
mutual decision
mutual action
supporting related groups

Providing informationis a one-way process of the social participation. We tell

what we want but there is no direct response. Examples are the project website,
an article about the project in a newspaper or any other media.
By the consultationsthe opinion of the related social groups can be integrated
in the planning process. It is a two-way communication: we tell what we need
and the partner can react and respond directly. This can be a great help to create
the problem list, evaluate the plan versions and chose the most suitable one.
If the related persons are also decision makers then it is a mutual decision. The
opinions of all parties must be taken into consideration and integrated in the
plan. We have to define a configuration which fulfils their demands.
During mutual actionthe other related party provides a declaration of
acceptance and active contribution. This might mean organizational changes,
operation methods or resource allocations.xvii The projects success highly
depends on the other partys attitude and commitment
When supporting the related groupswe enable the groups to form their own
strategies and we integrate these in the general strategy.xviii

A precondition for a proper plan is to involve the society in the planning

process right from the beginning.

Social participation can significantly increase the projects success and social
acceptance.
Social participation can help:
define the goals
judge problems
find the solution alternatives
evaluate the different versions
chose the desired strategy
Social participation is however limited: it must be carefully examined who and
how deep to be involved in the planning process.
Before involving the participants we have to clearly define the decision range.
Consulting does not always work, some decisions must be made without
mutual agreement. It is not efficient to involve the society in topics which are
not negotiable or no longer modifiable.

Social participation is generally interesting for:

regional partners
local authorities
traffic/transport companies
economic representatives
road users
legal authorities
local inhabitants
civil organizations
Exercises
Please answer the following questions and complete the following exercises!
Exercise 1.
What makes the difference between good and bad plans?
Exercise 2.
What is the role of the goals and problems?
Exercise 3.
What is the best way to define the goals?
Exercise 4.
What do we consider as a problem?
Exercise 5.
How can we create a balanced plan fitting into the environment?
Exercise 6.
How can we evaluate and compare the different plan versions?
Exercise 7.
What is the function of the social participation?
Exercise 8.
What are the degrees of the social participation?
Exercise 9.
What are the limits of the social participation? Why?

The planning process

The planning process begins with defining the demand for a new
development and it ends with finishing the construction of the new
establishment.
By properly structuring the planning process we can ensure that
- the preparations necessary to create proper plans are correctly made
- the different tasks and decision points are separated
This lesson presents the elements of the planning process, the functions of
the individual phases and for each planning phase it reviews the plan types
commonly used in Hungary.
Elements of the planning process
Planning the road is just one step of the planning process which begins with
defining the demand for a new development and ends with finishing the
construction of the new establishment. During the planning process we
examine the configuration options while we gradually tighten the decision
range and gain more and more detailed proposals. This structure secures the
birth of proper plans with increased focus on
- preparation
- discovery of the demands and correlations
- composition of the possible solutions.
The steps of the planning process are separated steps but overlapping is
possible. The planning concept is the framework for the process elements. The
concept is continually changing and shaping according to the decisions taken
during the planning steps.
Elements of the planning process
Strategic planning
Feasibility study
Detailed planning
Construction/realization

CONCEPT
Strategic planning

Feasibility study

Detailled planning

Construction

Figure 6. : Elements of the planning process

Strategic planning has the goal of defining the development demands. During
strategic planning we examine the development directions, the priorities and
the optimal allocation of the available resources. The strategies are being
created, discussed, finalized and approved. Key objectives of the strategic
planning are to satisfy the mobility demands and have the plan accepted from
environmental and social view. Analysis of the system and the environment
and the interaction between them is also one of the tasks.
One of the planning methods is an extensive procedure, trying to answer three
simple questions:
- Where are we now?
Status analysis, identification of problems
- What is our future goal, where do we want to get?
Future vision, goal setting
- How do we get there?
Action plan, activites
One key task of the strategic planning is to involve the community and define
the concept of the planning process. The decisions taken during strategic
planning will influence and limit the planning abilities of the further steps.
Feasibility studyhas the goal of setting the fundamentals of the development
projects. In this phase we fine tune the demands and goals. We compose
different versions in order to gain solutions for the planning task from several
approaches. One version is the zero version with no change and another one
is the soft version without any construction limiting the actions to traffic

control measures. By evaluating the versions we have to check their influence

on the environment and upon need we have to take care of compensation
measures.
In this phase we also complete the financial and economic analysis of the
chosen version. Paralelly with the feasibility study we can also make an
environmental effect study with a variable level depending on the investments
scale and effect.
The communitys participation is very important in this step. During planning
we have to define the related group of people and provide opportunities for
participation. When executing larger investments we might need a social effect
study, too.
Before successfully implementing a project it must be prepared well enough,
meaning:
- it must be technically fine-tuned, enabling accurate cost estimations
- legal and organizational preconditions of implementation must be fully
mapped and acknowledged
These exhausting preparations enable us to take the right decision and upon
approval launch the project.
In the phase of detailed planningthe complete documentation of the road plan
is made, including calculations of dimensions and quantities. Planning
parameters are available from previous feasibility studies while the technical
solutions and the plans are based on previous decisions and commitments.
There is room for slight changes compared to the original concept if it brings
explicit improvement. The related personnel are to be involved in this step as
well.
During detailed planning we have the following tasks:
- legal approval process, clarification of legal conditions
- direct preparation steps, finishing plans, acquiring target area
- sourcing activities, tendering, ordering, supplier negotiations
Construction can begin after the preparations are finished and the
suppliers/subcontractors are chosen and contracted.xix Durign construction
slight modifications might be needed. After the construction is ready, the
establishment goes through technical release and hand-over. Operation and
maintenance of the establishment begin.

The roads features and scale can be modified by operation deviations so

individual planning solutions lead to the need for individual operation and
maintenance procedures which adopt the roads irregular demands.
Planning steps in Hungary
In practice different plan types belong to each planning phase. The functions
of these and the relation between them are defined so that going through the
process will result in a good plan.xx The phases and content requirements of
road establishment planning are defined by the specifications of road affairs.

Road planning T 2-1.201:2008

Network development plan
Strategic planning
Traffic-related part of the resettlement plan
Preparatory examinations
Disposition plan
Feasibility study
Feasibility study, research plan
Environmental effect studies
Approval plan
Construction plan
Detailed planning
Bid plan
Plans needed to open the road to traffic
Construction
Plans needed after opening the road to traffic
Figure 7. : Correlation between planning steps and plan types in Hungary

Strategic plans have two major types depending on the features:

strategic and operative plans containing mostly future actions, their goals,
timing, methods, organizational and financial background (development
plans)
resettlement plan and local construction regulations defining the
developments dimensional and physical relations and containing its legal
terms (sorting assets)
One of the development plans is the settlement development concept, roughly
defining the settlements vision, mission, development directions, overall goal
settings and the strategic operations of the next 10-15 years. This document is
the basis for the resettlement plans and the midterm and longterm development
planning.

One tpye of resettlement plans is the settlement structural plan with

importance from traffic aspects. It defines
- the ways of usage of the single territories
- the configuration and layout of the essential infrastructure items which have
a major impact onthe final settlement structure.
This plan secures the playground for the main traffic strategies to avoid
monopolyxxi problems later on.
The traffic-related part of the resettlement plan deals with the traffic tasks. It
has the mission of setting up the traffic hierarchy and marking the exact spot
for roads, parking places and traffic junctions.

Figure 8. : Example for resettlement plan

Preparatory examinations have many versions. They are not always individual
and sometimes we skip making them.
The Feasibility studyxxiiis a basic document providing the decision makers
with an objective view on
the problem which needs a solution
the range of possible solutions
the extent of the project implementing the recommended solution
the expected qualities of the soon-to-be built establishment/service
the rounded amount of the financial resources needed for the project
project risks

Based on a good feasibility study one can make a relevant decision on

supporting the project and later on when controlling the project, the study will
properly justify that the project had been well prepared before it began.
Environmental effect studies logically belong here although they are not part
of the feasibility study. Detailed financial and economical analysis are also
part of the study.
The goal of the feasibility study is to provide proper information for the
decisions makers so they can make the right choice between approving,
modifying or cancelling the project. The task of the study is to find the best
solution and examine how much the proposed project is justified and viable.
Creating the study leads to the result of
- the proposal to solve the planning problem
- the evaluation of the projects relevance, feasibility and maintainability

Figure 9. : Lay-out plan for feasibility study.

The approval plans task is to present the applied technical solutions without
going into the technological details. The approval plan is the basis for licences.
When creating one You have to complete many consultations with service
providers, road maintainers and the related concerns.

Figure 10. : Section of a traffic lay-out plan belonging to an approval plan

The construction planis created after all licences are available.xxiii It contains
the modifications required in the construction licence, the detail plans, the
ground data and plans regarding conrtruction arrangements.xxiv If the
subcontractors are available/chosen by the time of making the construction
plan then modifications are possible upon their suggestions and observations.
The bid planpresents the information needed by the potential subcontractors
in order to submit proper price offers. The subcontractors competing for the
construction assignment have to submit their offer with respect to the given
quantities and quality requirements specified in the bid plan. This means the
entrepreneurs provide a detailed price offer for the exact task described in the
bid plan. Compared to the construction plan, the bid plans content is extended
with quantified calculations and quality requirements.
After the subcontractor is chosen, there might be slight changes due to his
suggestions.
The realization planis one of the plans needed to open the road to traffic. It is
the basic document of the opening procedure, it records the achieved status
and it contains the deviations from the construction plan. It is important for the
operation/maintenance activity.
Exercises
Exercise 1.
What are the elements of the planning process? What is the reason for this
structure?

Exercise 2.
What is the task of strategic planning?
Exercise 3.
What is the goal of the feasibility study?
Exercise 4.
What are our tasks during detailed planning?
Exercise 5.
What are the major plan types in Hungarian practice? How are they logically
related and how do they fit into the planning phases?

Functional planning
The main challenge for the design engineer is to foresee how the new
establishment under design) will function inthe future, how efficiently it will
be utilized by the people. Functional planning is a logical planning describing
how the system operates and focusing on the demands and requirements of the
future users.
This lesson presents the basics of functional planning and the main functions
of road establishments. It discusses the role of functional classification and its
Hungarian practice.

Basic principles of functional planning

Function means a task or service directly related to the usage of the
establishment. We expect the system to secure and fulfil this task or service.
Every new development aims at realizing functions. Most functions are
achievable different ways, however the designer should mind some basic
principles so the realized development will be well accepted and popular.
Functional planning focuses on the users demands, it is a process and an
outcome simultaneously. As an outcome it describes the quantitative and
qualitative requirements of proper utility. Adhering to these requirements will
lead us to the right outcome.
In order to create solutions that function well, the following questions are to
be answered:
What is the goal of the development?
Who will use it?
What is the purpose of using it?
Is it obvious for the user how to use it?
Is the user using it on a comfortable and attractive way?
How does the system handle errors?
Functional planning means that we conceptually think over what individuals,
functions, services, tasks and planning items will be closely interlinked.
Functional plans describe
the goal and motivation of the complete system, thier integration into an
overall strategy
the demands, goals, aspects of the related individuals (how do they want to
use the system)
the requirements and the operation of the establishment
Road establishments have the goal of reaching buildings and estate items at
the beginning and/or end of a journey and providing certain levels of travelling
mobility on the way. Based on this, road establishments have two basic
functions:xxv
Service function
Mobility function

Main roads
Collective roads
Side roads
Figure 24. : Correlation between mobility and service level functions.

Functional classification means sorting the roads into groups based ont he
service they provide for the users. This is important as traffic is not handled by
the single roads individually buti t is handled by a network, a system of roads.
By functional planning the role of the roads can be planned on network level
and this can be the basis for a conception which oversees the planning process.
Based on the service and mobility functions roads are classified into three
major clusters. Main roads provide high level of mobility but at the cost of
limited service functions.xxviLocal roads have a main function of serving the
estate items, including many slow traffic operations. Along local roads
mobility function is limited as strict speed limits are necessary. xxvii Collective
roads bridge the gap between main roads and local roads, providing the
balance between the mobility and service level functions.xxviii
Defining the roads function is the very first step of the planning process. by
this definition we plan the future operation of the establishment. Based on the
function we can pick the right planning speed and geometric parameters.

Functional planning is not an exact science and functional classification is not

always definite. The functions relation and proportions can not exactly be
defined and might change upon time and space.xxix Thats why the experiencebased judgements of the veteran design engineers must be included in the
planning decisions.

Figure 11. : Uncertainties of functional planning.

The functional classification of roads is not constant. Due to the continuous

development of the road network the role of the roads might change within the
road system. As the users habits change, the utility of the roads change
respectively. If this happens the roads functional configuration will no longer
fulfil its mission and the demands of the users.xxx This can lead to several
conflicts.
How can we avoid that the roads functional configuration deviates from its
function? We have two options:
In order to keep the roads original function we check and control the place
and the way of the changes inthe usage. We also regulate the relation
between the neighbouring areas.xxxi
The functional classifications must be periodically verified. It might have
to be changed in case of major road network developments, change of usage
or change inthe intensitiy of road usage. Of course this will only work out
well if we manage that the new classification corresponds with the new
functional configuration and we execute the upgrades and modifications on
the road so it fits the new classification.xxxii

Functional planning in Hungary

In Hungary, roads are classified into planning classesbased on their role in the
road network. Planning classes provide a functional classification based on
network aspects and hierarchy. By classification into planning classes we
define the main technical parameters and the planning speed, in other words
we ensure that the road will be constructed with the right features according to
its planned function.
Hungarian practice differentiates three basic functions: connection, discovery
and service functions. This separation is seemingly different from the one
described in the previous chapter but in fact the connection and discovery
functions are the two divisions of the mobility function. The connection
function covers the external relationship improvement and the service for
transit traffic while the discovery function is about providing the internal
relations. Service function actually represents a range of the mobility function,
the range where the service function is limited. In contrary, discovery function
has a large focus on internal relations besides mobility.
Planning departments divide the road network into three main categories :
high-speed roads, main roads and side roads. Within the main categories we
find further subcategories, in the outskirts there are 10 planning departments
while in downtown there are 8, including bicycle and pedestrian
establishments.

Roads in the outskirts

High-speed roads
Main roads

Side roads

Freeway
Highway
I. class main road
II. class main road
Connection road
Service road
Station-oriented road
Other road
Cycle-path
Footpath
Figure 12. : Outskirts road planning departments.

Code of
planning
department
K.I.
K.II.
K.III.
K.IV.
K.V.
K.VI.
K.VII.
K.VIII.
K.IX.
K.X.

Roads in downtown
High-speed roads
Main roads

Side roads

Freeway
Highway
I. class main road
II. class main road
Collective road
Service road
Cycle-path
Footpath

Code of
planning
department
B.I.
B.II.
B.III.
B.IV.
B.V.
B.VI.
B.IX.
B.X.

Figure 27. : Downtown planning departments

Within the planning departments the environmental circumstances secure the

flexibility needed for planning. This means we chose the main technical
parameters according to the constraints. In the outskirts we mostly base the
planning parameters on the geometric constraints while in downtown we pay
attention on the areas sensitivity towards the negative effects of traffic.

Environmental circumstances in the outskirts

A

Flat area without natural or man-made restrictions

Flat or hilly area with restrictions

Hilly or mountain area with restrictions

Figure 13. : Environmental circumstances in the outskirts.

Environmental circumstances in downtown

A

Low building degree/percentage, not sensitive environment

Low building degree/percentage, sensitive environment

High building degree/percentage, not sensitive environment

High building degree/percentage, sensitive environment

Figure 14. : Environmental circumstances in downtown.

The Specification of Road Affairs defines connection, discovery and service

network roles for downtown roads.
The connection role focuses mostly on the mobility function, overshadowing
the service function (main roads). In case of the service role it works the
opposite way, the primariy function is service and the mobility function has a
secondary role (service roads). The discovery role keeps an equal balance
between the two.

Exercises
Exercise 1.
Please explain the basic principle of functional planning! Why is it important
to design road establishments on functional basis?
Exercise 2.
Please show the two main functions of road establishments! How can we
calssify the roads by thess two functions?

Exercise 3.
Why do road functions change? How can we avoid that the roads functional
configuration differs from its function?
Exercise 4.
Please, present the roles of the road planning departments in Hungarian
practice!

Control questions
Q2.1. What make as a plan a good plan?
Q2.2. What makes a plan a bad plan?
Q2.3. What are the conditions of creating harmonized proper plans?
Q2.4. What makes an establishment optimal?
Q2.5. What is the role of the goals in the planning process?
Q2.6. How do we properly define the goals?
Q2.7. Why is it important to make clear and obvious goal definitions?
Q2.8. What is the role of the problems?
Q2.9. What are the ways of discovering the problems?
Q2.10. Why do we have to involve the community inthe planning process?
Q2.11. What is the helping potential in involving the community?
Q2.12. What is the task of the road planning process?
Q2.13. How do we ensure flexibility within the road planning process?
Q2.14. What is to be secured during the planning process?
Q2.15. What is the role of functional planning?
Q2.16. What parameters are defined by functional planning?
Q2.17. Why do we have to periodically check the roads functional
classification?
Q2.18. What is the correlation between the change of territory usage and the
roads functions?
Q2.19. Please introduce the roles of the planning departments!
Q2.20. What secures the flexibility within the planning departments?

Answers
A2.1.
It fulfils the safety and mobility demands while preserving and
protecting the related environmental and cultural values.
A2.2.
The road is not in harmony with its environment and affects
important natural and human resources.
A2.3.
Using flexible design solutions and involving the community int he
planning process from the beginning.
A2.4.
A plan is optimal if it realizes the goals defined regarding the
establishment and it solves the occuring problems.
A2.5.
They summarize the social, natural and traffic demands that are to be
realized.
A2.6.
They must be clear, obvious and measurable.
A2.7.
Clearly defined goals help to identify the problems calling for
solutions and they provide the fundamentals to evaluate the versions and
furthermore they enable the supervision of the execution process.
A2.8.
They provide the basis to define possible solutions.
A2.9.
On site observation, realistic analysis and consultation with the
related personnel.
A2.10. By involving the community the projects success and social
acceptance can be increased dramatically.
A2.11. It can help in defining the goals, weighting the problems, finding the
possible alternatives and evaluating the proposed versions.
A2.12. Safe integration of the demand for road developments and the
surrounding natural and human environment.
A2.13. Geometric parameters have a certain tolerance with min/max values
in the standards. In case of serious environmental effects it is possible to ask
for exemption. Upon need previous decisions can also be revised if the effects
are significant.
A2.14. The road must be in harmony with its environment. To ensure that,
creation of the detailed plans must be preceded by executing the preparatory
jobs and chosing the proposed solution.
A2.15. Planning the establishments usage and function
A2.16. Planning speed and cross-sectional configuration
A2.17. Because changes in the traffic pattern might result in changes of the
road functions.
A2.18.

Changes in the territorial usage will change the roads functions.

A2.19.
A2.20.

Planning departments represent functional groups.

Environmental circumstances

The word environment is used with a broader meaning here. It covers all connections, correlations referring to
the establishment, its users and every party affected by the establishment and its usage.
ii

We can achieve this by involving the community.

iii

If we solve the problem symptoms and not the root causes then we let he problem bigger to a higher escalation
level. Par. ex. if many pedestrians cross the road against the rules, we can create a barrier for them. By this
solution we stop the pedestrians from crossing the road but the problem of the missing leagl crossing point
remains unsolved.
iv

Consultation with local inhabitants, civil and state organizations, operators, authorities

Par.ex. traffic examinations, capacity calculations, safety analysis, effect study

vi

Experience collected by ourselves. For an engineer it is essentially important to visit the site personly. That is
the only way to know more about the local inhabitants, their habits, demands and experience the problems first
hand. Site inspections have the goal of planting ourselves into the correlation system of the establishment and
get a direct feeling of the site. This way we find the right solutions easier.

vii

Par.ex. instead of saying noise pollution reduces it is more effective to say Your sleep will be untroubled at
night.

viii

This goes for arc radius or slope gradient among other parameters.

ix

Par.ex. by reducing the planning speed we can achieve a sketching which fits into the environment better. Of
course there is nothing for free : in this case the traffic completion will be less ideal.
x

Lets think about the reconstruction of the crossing sections.

xi

This is not so simple in real life. You can not turn every goal into a measurable one. One example is the aesthetic
effect. In this case for example we can use a ideal neutral problematic scale and the classification will be
more or less subjective.

xii

A fitting example here is the plantation of replacement forests. We have to plant new trees in a quantity equal
to the summed tree-trunk diameter of the trees we had to cut as a sacrifice for the new road establishment. The
damage is a fact, the environment is locally damaged but we have made the compensation in another forest so
globally we have compensated nature as much as we could.
xiii

xiv

Par.ex. dimensions, sketching, capacity

We connect the possible values through a linear or nonlinear transformation to the values of a multidegree
scale. We usually use 3-, 5- or 10-degree scale but other values are possible. Example: if we connect the number
of fatal accidents to the values improving, stagnating or worsening then we have made a transformation
to a 3-degree scale.

xv

We can make two mistakes here:

1.

2.

: the transformation does not differentiate the versions. The scale is too wide compared to the
possible values. Par.ex. the value improving does not differentiate minimal and significant
improvement.
: the transformation makes too much difference. Par. ex. we can compare service levels. There
might be very different traffic features and scores belonging to service level A or B, however from
the aspect of comparing different versions they are practicly equal.

xvi

Douglas Adams must have had very unpleasant experience regarding road constructions and social
participation. His bestseller Galactic travel guide for hitch-hikers starts with a galactic freeway construction. As
part of the project Earth is supposed to be destroyed. The planners were careful, the plan was available int he
Alpha Centauri system. Noone protested so the designers were right to think that the project would have no
environmental effects. The fact that space travel is not available for Earths inhabitants seems a private problem.
The sad thing is that it happens so in many cases so the example is not that extreme. If the number of the affected
people is limited then it is enough to publish the information on the wall newspaper or website of the related
bureau. How lately have we checked the website of the City Hall if there is a project affecting us ?
xvii

An example can be the foundation of the Budapest Traffic Association. The traffic service providers should join
forces and cooperate in order to offer the passengers a better combination of improved services.

xviii

An example can be the traffic service strategy for handicapped people.

xix

Preparation work does not obviously end when the construction begins. Par.ex. the handover of the total area
can be very slow so there is no point in waiting for the total area to be available, the work must start wherever
possible.

xx

Unfortunately we have seen examples showing that the approval plan was finished sooner than the feasibility
study. It is a remarkable goal of the chapter to emphasize the right time order and logical order.

xxi

Example can be the Nagy Lajos Kirly avenue where the regulation range is defined according to the 2X2 lane
road planned to be realized later.
xxii

The content of the feasibility study always depends on the exact task. The Specifications of Road Affairs defines
it as Technical study plan but in many cases it is called feasibility study. The feasibility study belongs to the
preparatory plans but its content can easily overlap with that of the technical study plan. The more general term
feasibility study fits the logical train of thought better so we use it here.
xxiii

In case of smaller establishments it is possible to create consolidated approval plans and construction plans.

xxiv

Example for this plan: plan of traffic control during construction

xxv

Of course in an urban environment this is far more complicated. Functions connected to pedestrian, cyclist
and public transport also appear.
xxvi

Extreme examples are the freeways: You can drive fast and undisturbed, on the other hand every disturbing
element is reduced to the minimum. Service function is completely missing, junctions are far from each other
and traffic is regulated at the highest level.

xxvii

Example is the district with 30km/h speed limit

xxviii

Example for collective roads is a section of the Budafoki avenue between Szent Gellrt Square and the Rkczi
Bridge.

xxix

As an example, at the crossing sections of the main roads, besides the mobility function the service function
also has significance. No wonder that these road types are bearing many conflicts. The solution is the
harmonization of the functions. With todays approach it means that the mobility function is to be reduced and
urban functions are to get more attention. Of course this will not help the transit traffic.

xxx

If we install a shopping mall next to a main traffic route then serving the shopping mall might pose problems
for the traffic route. The shopping mall along the main road 11. is an excellent example. In order to serve the
shopping mall, a roundabout was built ont he two-lane road 11. But this roundabout proved to be a bottleneck
and slowed traffic down. Finally the problem was solved by an overcrossing built above the roundabout.

xxxi

Think about serving the areas next to the freeways.

xxxii

Reconstruction of the crossing sections is a typical change arising from functional classification changes.