Roads for All Annual Report 2008

ISBN: 978-1-906006-76-1
Published by Transport Scotland, November 2009

This document is also available in pdf format (720k)

Contents

1 Summary

2 Trunk Road Disability Equality Scheme Objectives

3 Progress
3.1 Roads for All
3.2 Progress since 2006

4 Objective 1 - Removing Barriers
4.1 Action 1a
4.2 Action 1b
4.3 Action 1c

5 Objective 2 - Improving Awareness
5.1 Action 2a
5.2 Action 2b
5.3 Action 2c

6 Objective 3 - Developing Good Practice
6.1 Action 3a
6.2 Action 3b
6.3 Action 3c
6.4 Action 3d

7 Objective 4 - Making Facilities Accessible
7.1 Action 4a
7.2 Action 4b

8 Objective 5 - Improving Journeys
8.1 Action 5a
8.2 Action 5b

9 Objective 6 - Encouraging Mobility
9.1 Action 6a
9.2 Action 6b

Appendix A - Revised Action Plan of the Trunk Road Disability Equality Scheme

1 Summary

Since its publication in December 2006, significant progress has been made in taking forward the Trunk Road Disability Equality Scheme and Action Plan (DES&AP). Transport Scotland has extended the remit of the original Working Group as the Roads for All Forum to provide ongoing involvement in the implementation of the Action Plan and has appointed consultants to assist with taking forward the actions. The following major strands of work have been progressed during the first two years:

• full access audit of the trunk road network;
• identification and costing of works to remove barriers to access;
• theoretical prioritisation of access works by trunk road corridor based on population and road use;
• development of potential future 5,10, and 15 year programmes for the implementation of access works;
• development of the Good Practice Guide for Roads;
• identification of training needs and development of training programmes;
• journey surveys to establish the access needs of people to facilities and services from the trunk road network;
• upgrade of motorway emergency telephones programmed incorporating inclusive design facilities;
• continued involvement of disabled people in all aspects of this work including the Good Practice Guide for Roads.

The purpose of the Annual Report is to provide a summary of the progress in taking forward the Trunk Road Action Plan. In addition, the next steps required to take forward each action are identified and listed. These have been collated into a forward programme for the coming year.

The Trunk Road DES&AP is due for review and republication in 2009.

2 Trunk Road Disability Equality Scheme Objectives

1 To make Scotland’s trunk road network safer and more accessible for all users by the removal of barriers to movement along and across trunk roads.

2 To develop all professional and technical staff involved in the design, construction, operation, and maintenance of the trunk road network to recognise and understand the needs of disabled people.

3 To ensure the design, construction, operation, and maintenance of the trunk road network meets the needs of disabled people through the involvement of disabled people in the development of good practice guidance.

4 To make facilities and services more accessible from the trunk road network.

5 To make journeys secure and comfortable for all by working with other service providers and utilising appropriate technology.

6 To promote journeys by public transport by working with local authorities, regional transport partnerships and operators to improve access, facilities and information at bus stops etc. directly accessed from trunk roads.

3 Progress

3.1 Roads for All

Transport Scotland began preparation of its first Trunk Road Disability Equality Scheme and Action Plan (DES&AP) in early 2006. The development was overseen by a Working Group with membership drawn from Transport Scotland, the Scottish Government, the consultants appointed to assist with the scheme, and representatives of disability groups. This was supplemented by a Workshop Group which included further representatives of disability groups, public transport operators and the police. This group actively participated in the development of the scheme and action plan including setting the objectives and deciding on actions to be taken.

The Trunk Road Disability Equality Scheme and Action Plan Roads for All was published in December 2006.

3.2 Progress since 2006

Since its publication, significant progress has been made on the Action Plan. Transport Scotland has extended the remit of the original Working Group as the Roads for All Forum to provide ongoing involvement in the implementation of the Action Plan and has appointed consultants to assist take it forward. The following major strands of work have been progressed during the first two years:

• full access audit of the trunk road network;
• identification and costing of works to remove barriers to access;
• theoretical prioritisation of access works by trunk road corridor based on population and road use;
• development of potential future 5,10, and 15 year programmes for the implementation of access works;
• development of the Good Practice Guide for Roads;
• identification of training needs and development of training programmes;
• journey surveys to establish the access needs of people to facilities and services from the trunk road network;
• upgrade of motorway emergency telephones programmed incorporating inclusive design facilities;
• continued involvement of disabled people in all aspects of this work including the Good Practice Guide for Roads.

The purpose of the Annual Report is to provide a summary of the progress in taking forward the Trunk Road Action Plan. In addition, the next steps required to take forward each action are identified and listed. These have been collated into a forward programme for the coming year.

Detailed progress against each of the objectives and actions is set out below together with the updated DES&AP.

4 Objective 1 - Removing Barriers

To make Scotland’s trunk road network safer and more accessible for all users by the removal of barriers to movement along and across trunk roads.

4.1 Action 1a

Audit the whole trunk road network and conduct a desktop review of existing asset information including bus stops to identify the total extent of all types of barrier to travel for all users of the trunk road network.

Target

August 2007.

Progress

The trunk road network audit was completed by mid November 2007.

Purpose and scope of the audit

The purpose of the audit was to identify and quantify the total extent of all types of barriers to access for all users of the trunk road network as well as to identify any operational or maintenance aspects which could create barriers. The audit covered infrastructure and features which form part of the trunk road network or are contiguous with it in such a way as to be integral to its use by both motorised and non-motorised users. Such features included:

• footways, footpaths, cycle-paths and other surfaces used by non-motorised users;
• footbridges, underpasses, ramps and steps;
• lay-bys and rest areas;
• parking facilities;
• bus stops and bus shelters;
• pedestrian crossing points (controlled and uncontrolled);
• street furniture (including lighting columns, guardrails, bollards and the like);
• road signs and other roadside information.

The audit did not extend to motorway service areas or other roadside facilities not operated or directly controlled by Transport Scotland. The location of these facilities was however logged during the audit as well as any road signs that direct the public from the trunk road network to accessible facilities (see Objective 4).

Methodology

It was essential that information was collected and recorded in a consistent and repeatable way. This was achieved by the use of a standard checklist of features which identified potential barriers to access. The checklist was prepared against pre-determined standards based on a review of current international good practice as set out in relevant publications (Inclusive Mobility, BS 8300, Guidance on the Use of Tactile Paving Surfaces, Design Manual for Roads and Bridges (DMRB) etc) and in light of the findings of a sample audit carried out in October 2006.

Because of the large volume of information, data was collected using ruggedised tablet PCs with data capture software, integrated GPS and web cameras attached. This equipment is similar to that used by the trunk road Operating Companies to capture defects as part of the existing maintenance regime. The data capture software, RDC, was developed by WDM Ltd, developers of systems already used by the Trunk Roads: Network Management Directorate (TR:NM) within Transport Scotland.

Scale of the audit

The resources required to undertake the full audit of the network (3.500 km) amounted to approximately 150 person-weeks. The audit was undertaken by nine teams of two, comprising one experienced person and one assistant, engaged over a 16 week period. The planning and management of the auditing process amounted to approximately 35 person-weeks. The on-site audit started in late July and was completed by mid November 2007.

Key findings of the audit

There were a number of barriers to access on the audit checklist which could be classed as maintenance or operational issues. The total of these barriers logged was 2,150 which accounts for 6 per cent of the 35,000 barriers identified on the trunk road network. The most frequent included:

• 845 locations with poor footway surfacing;
• 621 locations of overgrown vegetation;
• 273 service covers not flush;
• 239 locations of inadequate drainage (ponding);
• 62 occurrences of redundant street furniture;
• 42 occurrences of gaps in the footway exceeding 10 millimetres in a horizontal plane;
• 16 locations with outdated/worn blister profile on tactile paving units.

The following are the most commonly occurring barriers to access identified on the trunk road network and account for 58 per cent of the 35,000 barriers identified. The figure in brackets is the proportion relative to the total number of barriers logged.

• 4,164 pedestrian crossings with a lack of tactile paving (11.9 per cent);
• 3,077 pedestrian crossings with the kerb upstand in excess of 6 millimetres (8.8 per cent);
• 2,924 lighting columns with a lack of tonal contrast banding (8.3 per cent) (the total number of lighting columns on the network is approx. 20,400);
• 1,273 pedestrian crossings with the dropped kerb transition area excessively steep (3.6 per cent);
• 1,236 lay-bys with a lack of footway facilities (3.5 per cent) (the total number of lay-bys on the network is 2,415);
• 1,216 pedestrian crossings with a lack of dropped kerb (3.4 per cent);
• 999 signs with a lack of tonal contrast banding (2.8 per cent) (the total number of signs on the network is approx. 51,300);
• 939 pedestrian crossings with single transition dropped kerbs (excessively steep) (2.7 per cent);
• 877 bus stops with lack of a boarding kerb (2.5 per cent);
• 735 bus stops located in narrow footways (2.1 per cent);
• 651 bus stops with illegible timetables (1.9 per cent);
• 634 sections of footway with lack of rear edge definition (1.8 per cent);
• 582 bus stops with no shelter (1.7 per cent);
• 539 sections of overgrown footway (1.5 per cent);
• 512 sections of footway with excessive crossfall (1.5 per cent).

There are numerous overbridges, footbridges and underpasses which cross the trunk road network, the majority of which form a route for non-motorised users. These were audited, and the following summarises the key findings:

• 52 ramped structures have excessive longitudinal gradient, rise or length;
• 34 structures have a lack of tactile warning surfaces on their adjoining staircases;
• 34 structures have poorly designed handrails;
• 21 structures where handrails are not provided on both sides of a ramp or staircase;
• 20 structures where ramps have not been accompanied by steps;
• 11 structures with stepped ramps;
• 9 structures where stairs have not been accompanied by a ramp.

Of all the barriers on the trunk road network the split between urban and rural roads was approximately 50:50. The majority of barriers occurred on single carriageway roads (71 per cent). Urban single carriageways accounted for 40 per cent of all the barriers, followed by rural single carriageways at 31 per cent, rural dual carriageways at 16 per cent and the last 13 per cent attributed to urban dual carriageways.

4.2 Action 1b

Conduct a desktop review of good practice standards, develop appropriate equality impact assessment and test of reasonableness tools, agree these through the Roads for All Forum and apply these to each barrier to access identified in the trunk road network audit.

Target

December 2007.

Progress

The draft Good Practice Guide was published internally within Transport Scotland in February 2008 with refinement continuing throughout 2008 towards the training version of the document, now called the Good Practice Guide for Roads.

Good Practice Guide for Roads

The Guide summarises Transport Scotland’s policies and design standards in relation to inclusive design in the construction, operation and maintenance of road infrastructure. Inclusive design is an approach which aims to create environments which can be used by everyone regardless of age or disability.

The Guide gives a synopsis of current good practice standards and guidance from the UK and overseas. There are no new recommendations within this document and it is not necessarily a substitute for referring to the source material. Transport Scotland’s position is explained where there are differences between standards.

Good Practice Guide for Roads – Equality Impact Assessment (EqIA)

The Guide also highlights the duties imposed by the Disability Discrimination Act (DDA) 2005 which require public authorities to assess the impact of their policies on disability equality and make improvements where necessary and reasonable. In this context ‘policy’ is taken to mean activities, functions, strategies, legislation, programmes and services or processes.

The Guide refers practitioners to the Scottish Government’s EqIA tool for carrying out Equality Impact Assessments. This tool has the capability of considering equality in a wider sense than the scope of the Guide which focuses solely on disability equality and specifically on those factors directly relating to the design, construction, operation and maintenance of road infrastructure.

Good Practice Guide for Roads - Test of Reasonableness

A Road Authority must give due consideration to the many competing legal duties that apply to management, operation and maintenance of the road network against the resources available. The trunk road audit identified barriers to access on the network but a proportion of these barriers will have limited impact, for example due to their location, while others could be extremely costly to address, for example providing ramps on every footbridge. A Test of Reasonableness has been developed and included in the Guide in recognition of the DDA’s intent. The methodology involves consideration of the benefit of removing a barrier to accessibility against the cost. That said, the methodology recognises that the DDA 2005 encourages authorities to treat disabled people more favourably and the methodology adopts a consultative approach.

Next steps

It is intended that the Guide will be published as Scotland’s reference document for inclusive design, to which all involved in road design, construction, operation and maintenance can refer until the standards become integral to the DMRB.

Feedback on the Guide will be sought from the training programme participants and incorporated prior to its planned publication in Autumn 2009. Output from other actions will also feed into the Guide.

4.3 Action 1c

In consultation with the Roads for All Forum, develop prioritised action programmes based on the findings of the full audit and EqIA and Tests of Reasonableness. The programmes will utilise existing maintenance programmes where possible. Progress will be monitored and reported annually.

Target

March 2008.

Progress

A draft prioritised action programme was prepared in January 2009 as follows.

Prioritisation

The audit of the trunk road network identified that many millions of pounds of work is required to make the network fully accessible to all potential users. Committed works such as the proposed replacement of motorway emergency telephones with accessible units and certain lower cost mass action work such as applying tonal contrasting to all street furniture may be carried out on a "network wide" basis. However higher cost work requires to be planned and programmed over a period of time. Tackling such phased programmes requires prioritisation so that the greatest benefit can be realised "upfront" to maximise value for money. In consultation with the Roads for All Forum it was agreed that targeting movement within corridors that linked populations with health, education, employment and other social and economic facilities was the best approach. This recognised that if such corridors were not tackled as a whole then the corridor could potentially remain "inaccessible" until such time as the last barrier to movement was removed. On the basis that 20 per cent of any population are disabled people it was agreed by the Forum that prioritisation should be by way of existing corridor movement potential measured by way of current corridor traffic flow combined with adjacent corridor population.

The trunk road network was subsequently divided into 47 corridors which were prioritised on the above basis and theoretical 5, 10 and 15 year programme options were devised. The aim is to meet the Government’s vision that by 2025, disabled people will have the same opportunities and choices as non-disabled people. However a simple prioritised programme fails to recognise the opportunities available to include identified DDA works within other maintenance and improvement works to achieve the aim in advance and ensure maximum value for money. The practical aspects of merging the maintenance and improvement programmes with the identified DDA works will be taken forward by Transport Scotland in an integrated way with the full involvement of the Roads for All Forum.

Next steps

Transport Scotland to investigate the merging of maintenance and improvement works with the prioritised DDA programme to maximise value for money, and report back to the Roads for All Forum.

5 Objective 2 - Improving Awareness

To develop all professional and technical staff involved in the design, construction, operation, and maintenance of the trunk road network to recognise and understand the needs of disabled people.

5.1 Action 2a

Sponsor and support the introduction of appropriate training programmes on inclusive design for all Transport Scotland staff involved in the design, construction, operation, and maintenance of the trunk road network. This will include general disability awareness training and specific technical training for staff directly involved in design decisions. Provide lectures, seminars and awareness training on inclusive design for consultants, contractors and others involved in designing, constructing, operating and maintaining the trunk road network.

Target

Autumn 2008.

Progress

Interviews with Transport Scotland staff were undertaken in early 2007 to gauge the awareness, understanding, and level of training, previously provided to Transport Scotland’s roads staff on this subject. There have also been discussions with Transport Scotland’s training coordinator to establish the type and format of training for roads staff. The implementation of the training programme was pushed back to allow the refinement of the Good Practice Guide for Roads however the general awareness training was rolled out in September 2008.

Training

On review of the findings of the above consultation process it was agreed that there was a need to train Transport Scotland staff in inclusive design as follows:

General awareness training – there was shown to be a need and it was agreed that training would be given to all Transport Scotland staff to highlight awareness of the needs of disabled people.

Technical training – there was shown to be a need and it was agreed that training in current good practice would be given to the technical roads staff within Transport Scotland who are responsible for the management of road maintenance and capital improvement programmes. The technical training would then be extended to include consultants and other design organisations who are involved in the delivery of maintenance and capital works for Transport Scotland. Local Authorities have also shown interest and discussions are taking place with SCOTS.

The technical training will be based on the standards set out in the Good Practice Guide for Roads.

Next steps

Continue general awareness training sessions as required, and aim to provide technical training for Transport Scotland staff in Spring 2009 and roll out to wider "roads community" later in 2009.

5.2 Action 2b

Develop and introduce accessibility audits to road safety audits and require road safety auditors to undertake appropriate training.

Target

December 2008.

Progress

No progress to date.

In order to audit the implementation of the standards set out in the Good Practice Guide for Roads in future road schemes, it is intended that formal accessibility audits will become an integral part of the road safety audit process and it is intended that a training course will be established to provide an industry recognised qualification in this subject.

Accessibility audit training will be based on the standards set out in the Good Practice Guide for Roads.

Next steps

Aim to develop an industry recognised training course in accessibility auditing for road safety auditors in the second half of 2009.

5.3 Action 2c

Promote a national conference on the Roads for All Disability Equality Scheme and Action Plan to raise awareness among transport professionals and others across the country.

Target

November 2009.

Progress

No progress to date.

Next steps

A suitable time for the conference would be following publication of the Good Practice Guide for Roads and on completion of the three year period of the Action Plan in December 2009. This would indicate Spring-Summer 2010.

6 Objective 3 - Developing Good Practice

To ensure the design, construction, operation, and maintenance of the trunk road network meets the needs of disabled people through the involvement of disabled people in the development of good practice guidance.

6.1 Action 3a

Reconstitute the working group as the Roads for All Forum, comprising Transport Scotland engineering staff, representative groups, police and road transport operators.

Target

December 2006.

Progress

Complete. The Roads for All Forum has since met quarterly to review progress on the Action Plan.

Next steps

The Roads for All Forum will continue to meet quarterly.

6.2 Action 3b

Resource Transport Scotland to ensure timeous progress with the Trunk Road Disability Equality Scheme and Action Plan (DES&AP).

Target

December 2006.

Progress

Complete. Consultant Halcrow Group Ltd has been appointed to assist Transport Scotland and the Roads for All Forum with implementation of the Trunk Road DES&AP.

6.3 Action 3c

Agree the terms of reference for the Roads for All Forum (for example review policies and standards and help to establish priorities and monitor and review progress in addressing the actions within this plan).

Target

February 2007.

Progress

Complete.

Next steps

Continuous development and progress with the involvement of the Working Group.

6.4 Action 3d

Continue the involvement with local access and other representative groups and ensure that appropriate stakeholder groups are included on the list of non-statutory trunk road consultees for inclusive design purposes.

Target

Ongoing.

Progress

Ongoing.

Next steps

Continuous development and progress of the Trunk Road DES&AP is being driven by the Roads for All Forum, with the involvement of stakeholder groups who are included on the list of non-statutory trunk road consultees for inclusive design purposes.

7 Objective 4 - Making Facilities Accessible

To make facilities and services more accessible from the trunk road network.

7.1 Action 4a

Undertake journey surveys to establish the access needs of people to facilities and services and consider additional information, for example, existing bus stop location studies.

Target

December 2008.

Progress

A methodology for the journey surveys was agreed through the Roads for All Forum and to date six surveys have been undertaken, with more planned.

Journey surveys methodology

A range of areas across the country were to be represented so that the surveys were truly reflective of the current level of accessibility across Scotland. Surveys were to be conducted in a mixture of urban and rural areas, as well as areas with differing socio-economic profiles. Surveys were also to be conducted from the perspective of a variety of modes.

Prior to commencing the surveys a number of access panels were contacted for assistance with the surveys and meetings were held with five panels to gain an understanding of the journeys and routes that matter most to them. This determined which routes were to be surveyed in their area.

Surveys were carried out by disabled people from the local access panel, along with a Halcrow auditor. Surveyors were briefed on the project and provided with an appropriate level of training prior to commencing the surveys. Results were recorded by the Halcrow auditor to ensure consistency across all surveys. The onus was on the surveyors to identify and report any problems, issues and constraints identified along the route. Although the auditor had a checklist for identifying individual barriers to travel, a more qualitative approach was also used. The survey groups were asked to make comment on the overall level of accessibility along a whole journey, to identify their priorities along the route, and to comment on what changes would make the biggest difference to their ability to travel the route.

Next steps

Results of the journey surveys will be analysed and reviewed in order to develop a greater understanding of the access needs of disabled people. The findings will be incorporated into a report to be issued to and considered by the Roads for All Forum, before finalising recommendations. The recommendations of the report will feed into the prioritised action programme to address barriers found during the audit of the trunk road network.

7.2 Action 4b

Working with other bodies including transport operators, consider the scope for improving access to facilities and services located on or adjacent to the trunk road network.

Target

December 2008.

Progress

No progress to date.

Next steps

Development and agreement of the brief through the Roads for All Forum.

8 Objective 5 - Improving Journeys

To make journeys secure and comfortable for all by working with other service providers and utilising appropriate technology.

8.1 Action 5a

Capture and evaluate information on emergency facilities and support services on trunk roads, considering potential changes in telecommunication technology.

Target

December 2007.

Progress

Accessibility requirements have been considered in the new layout design for emergency telephones, including where facilities are to be provided behind vehicle restraint systems.

Next steps

Any further changes to facilities will be reviewed by the Roads for All Forum.

8.2 Action 5b

Bring forward possible options for the introduction of contemporary technology in conjunction with other advances and transport initiatives.

Target

December 2008.

Progress

A review of the contemporary technology available to aid accessibility has been undertaken, with case studies considered where possible. Technologies have been considered which reduce barriers to travel in relation to the four elements of travel: information, accessibility, journey and onward travel. A draft report is being prepared to summarise the technologies and make recommendations that are practical and of benefit to stakeholders, the emphasis being on "tried and tested" technology. The report will emphasise the need for standards that improve accessibility without inhibiting the development of future technologies.

Next steps

Draft report to be issued to and considered by the Roads for All Forum, before finalising recommendations. The recommendations of the report will feed into the Good Practice Guide for Roads.

9 Objective 6 - Encouraging Mobility

To promote journeys by public transport by working with local authorities, regional transport partnerships and operators to improve access, facilities and information at bus stops etc. directly accessed from trunk roads.

9.1 Action 6a

Consult existing forums and stakeholders and bring forward proposals for improving public transport infrastructure on and adjacent to the trunk road network.

Target

December 2008.

Progress

Initial consultation with Local Authorities and bus operators has commenced to find examples of existing good practice, including interchange arrangements with buses, coaches and ferries. A workshop has been planned for January 2009 to determine which of these examples of good practice adequately address issues associated with bus route integrity, road layout and bus stop facilities for all ranges of users and disabilities. The workshop is open to members of the Roads for All Forum, additional disability organisations identified as being pro-active in public transport matters, bus companies, Local Authority representatives and bus user representatives.

Next steps

Conclude consultation exercise and develop concepts for designs to address issues which have not been addressed in the Good Practice Guide for Roads.

9.2 Action 6b

In conjunction with the Roads for All Forum develop appropriate standards as regards the layout and access to public transport facilities on and adjacent to trunk roads. Consider the scope for pilot and demonstration projects.

Target

December 2008.

Progress

No progress to date, other than the bus lay-by standards in the Good Practice Guide for Roads.

Next steps

The conclusions of the workshop and design concepts developed under Action 6a above will form the scope for layouts that have to be detailed under this Action 6b. The design standards and details developed will feed into the Good Practice Guide for Roads.

Appendix A - Revised Action Plan of the Trunk Road Disability Equality Scheme