The Scottish Government

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Chapter One: Introduction and Context

Introduction

1.1 The Scottish Executive commissioned research to support their commitment to assessing public transport options for disabled people and to improve targeting of funding. Originally the focus of the required work was on the role of concessionary fares in relation to accessibility of transport for disabled travellers to inform the commitment laid out in the 2003 Scottish Executive Partnership Agreement ³. Advice from the Advisory Group led to the scope being broadened out at a very early stage. As a result, the focus of the research was changed to explore and assess a wide range of potential improvements to public transport for disabled people in relation to:

1. Difficulties in relation to the availability of transport
2. Difficulties in relation to the accessibility of transport
3. Information needs
4. Affordability
5. Fear of travel - confidence
6. Personal barriers to travel

1.2 A broad definition of 'public' transport was adopted for the purposes of this study to include buses, trains, coaches and taxis.

1.3 Previous research has shown that improved access to public transport is a crucial element of trying to increase opportunities, reduce inequalities and generally improve the life quality of many groups in society. Previous research has also indicated that there have been some improvements introduced in recent years. The introduction of recent Disability Discrimination legislation is a key step forward, but it is clear that many barriers still remain and that improvements are required in order to facilitate the use of practical, affordable and accessible transport for many people with illness and disability. Additionally, key demographic trends suggest that it is likely that difficulties with transport will extend to affect a larger proportion of the population. Therefore, research was required to identify what actions are still needed to further improve the situation and to explore why previously identified 'solutions' had not necessarily been adopted or successful.

1.4 This report presents the research findings of the large-scale project undertaken by TNS System Three Social Research ( TNS), the Transport Research Institute of Napier University ( TRi) and Transport and Travel Research Ltd ( TTR) against this background. The key objectives of the research were as follows:

• To examine the reality of disabled people's travel patterns.
• To identify disabled people's needs and priorities in relation to travel and transport
• To identify what prevents people from travelling more easily, often and widely
• The identification of the measures required to move towards equality of travel opportunity
• The recommendation of how such measures can successfully be implemented

Why Further Research?

1.5 Discussions and feedback undertaken as part of the research indicated a strong feeling, expressed by many individuals and organisations, that previous research has clearly identified the problems faced by disabled people in relation to travel and, to a certain extent, has also identified the necessary solutions. Indeed, there was a belief by some that no further research was required and instead what was needed was action. However, consideration of the findings of previous research against the current situation indicates that a clear problem still remains.

1.6 Perhaps the best way of demonstrating this is reference to two key pieces of research commissioned by the Scottish Executive. Henderson and Henderson undertook research in 1999 which identified particular areas required for improvement in relation to the provision and accessibility of transport for disabled travellers ⁴. A follow up study was commissioned by the Scottish Executive in 2003 to identify and assess progress made by policy makers and transport operators since the earlier research was conducted in providing accessible transport for disabled people in Scotland ⁵. Published in 2004, the study identified key policy developments that had taken place since 1998 including the establishment of the Mobility and Access Committee for Scotland ( MACS) and the gradual implementation of the Disability Discrimination Act ( DDA). While the researchers found that progress had been made in a number of areas, they noted that the pace of change in relation to DDA implementation was 'frustratingly slow for many disabled people' and that provision of transport that could be used by disabled people varied across Scotland.

1.7 Areas identified as ones in which progress has been made include the development and implementation of mandatory and voluntary access standards, which was seen to have had a significant positive impact on the accessibility of vehicles, although not all areas have accessible taxis available and not all improvements benefit all disabled people. The accessibility of some terminals, including ferry and air terminals, has also been improved. The rail industry approach of implementing systematic access auditing, was highlighted as a useful model of good practice to support the process of developing standards. Pilot, "demand responsive" services taking place in some areas of Scotland were seen to represent a new model of local transport for disabled people, which the researchers considered should be carefully evaluated.

1.8 Uncertainty about travelling, covering the reliability of all aspects of the journey was identified as a key barrier to travel and a cause of stress to disabled people. Cost was also found to remain a significant barrier. In particular the cost of taxis was high and availability of concessionary taxi fares was patchy. It was pointed out that the provision of concessionary fares on buses had little effect on those (very large number of) disabled people living in areas where there was a lack of suitable transport, who live in areas where there is little accessible public transport, who cannot use public transport, or who live some distance from services, and who are, therefore, reliant on personal transport. The researchers also suggested that provision of free off-peak travel for older people aged 60 and over that was available at the time of the research may be acting as a disincentive for disabled people to use buses due to higher passenger numbers overall. The main issue relating to personal, community and demand-responsive transport was that they have limited operation and are reliant on insecure funding streams.

1.9 The Reid Howie research ⁶ itself identified a number of key priorities on the basis of their work with a range of individuals and organisations, again demonstrating the lack of progress so far. The following issues were those which researchers identified as being most commonly raised during the fieldwork and postal survey undertaken:

• The need for public transport to be consistent and dependable, with reasonable guarantees that services described as accessible will be so, and that assistance offered will be provided.
• The need for more accessible transport vehicles, particularly buses and taxis.
• The need for transport facilities to be more accessible.
• The need for the attitudes and approach of transport staff to be appropriate and positive.
• The need for the attitudes and approach of other passengers to be appropriate and positive.
• The need for the wider built environment to be accessible. Among the issues raised were shops, offices and other places of work, health centres, leisure centres and public buildings.
• The need for public transport to be affordable, particularly taxis in most areas, but also flights and ferries in island areas.
• The need for better enforcement of a wide range of issues, such as poor parking, designated spaces, as well as maintaining spaces on buses and trains.

1.10 As demonstrated by the brief review of just two projects, previous research has closely identified the main barriers faced by disabled travellers and has proposed a range of remedies and solutions, yet many of the difficulties still remain and many of the recommendations continue not to be implemented.

1.11 Therefore, in addition to the aims and objectives outlined above, this research was required to:

• Examine why previously identified travel solutions have not universally and successfully been implemented and the impact of this on disabled people
• Identify how previous barriers to implementation could be overcome
• Identify the priorities in relation to the introduction of initiatives in order to inform targeting and phasing in relation to funding.

1.12 As the research was designed to build on what has previously been learnt, rather than merely replicate previous research, it was important to use multiple research sources and methods in order to validate and contextualise any research findings. Additionally, in order not to discard or ignore existing valid research, it was important to include a review of previous research findings and to assess what have been the barriers to implementing solutions. The research, therefore, comprised a broad and varied range of activities aimed at gathering a range of views, experiences and solutions including:

• A comprehensive literature review in order to examine previous evidence and contribute to an understanding of what, if any, barriers had lead to research recommendations not being implemented as quickly or as comprehensively as required.
• Analysis of the Travel Diary Element of the Scottish Household Survey ( SHS data) to identify current travel patterns and compare the number and type of trips undertaken by disabled and non-disabled people in order to investigate whether key inequalities still exist between the two groups.
• A questionnaire survey of 700 people who are either disabled or have a long-term illness, randomly selected from previous respondents to the SHS( TNS survey). This survey examined the current travel behaviour of self-reported disabled adults, how their current travel behaviour compares with their preferred travel behaviour and examined their views on what schemes and initiatives would be most likely to bring about a real change in travel behaviour.
• A series of case studies involving in-depth examinations of existing schemes and initiatives aimed at improving transport provision. The aim of this element of the research was to learn from existing good practice, to identify how elements of existing schemes could be improved and more broadly implemented and examine why some initiatives are not successful in order to learn how to implement successful schemes.
• Physical audits examining how disabled people negotiate the built environment. This was particularly important to demonstrate the range of difficulties and obstacles that can exist on just one journey and that, therefore, any range of solutions needs to be holistic and comprehensive.
• Analysis of available data on concessionary fares was undertaken to assess the potential impact of fare concessions on the travel behaviour of disabled people.
• Finally, a feedback exercise was undertaken with transport providers and organisations representing disabled people to examine the relevance, practicality and usefulness of the research findings.

1.13 Two volumes of Annexes accompany this report. The first of these includes the literature review, analysis of the SHS data and details of the survey methodology, the questionnaire and selected results from the TNS survey. The literature review was conducted early in the research. Some reports were provided to the researchers after it was completed. In some cases these have been included in the final report, though they do not appear in the literature review.

1.14 The second volume includes details of all of the best practice case studies and journey audits that were conducted. Some of the case studies and all of the journey audits are illustrated with photographs. It also includes details of the feedback exercise, which was designed to gather feedback in response to a document outlining some preliminary findings of the research. The document sent out and the feedback received are included in this Annex. In addition we received informal feedback throughout the research, and this has been included in the main report.

The lack of progress in relation to transport improvements for disabled travellers suggests key barriers to implementation of comprehensive and successful action. Additionally, within the realistic context of a difficult starting point against the significant future changes required, it is clear that some prioritisation in terms of the phasing in of initiatives is necessary. Given this context, the remainder of the report seeks to:

• Demonstrate the key inequalities that still exist in the travel patterns of disabled and non-disabled people and identify the latent demand for travel by disabled people (Chapter 2 - SHS Data and TNS Survey)
• Test the validity of the barriers and obstacles identified as reasons for these inequalities (Chapter 3 - SHS Data, TNS Survey, Audits, Feedback and Concessionary Fares Data)
• Examine the necessary solutions and how they are prioritised by disabled people (Chapter 4 - TNS Survey, Case Studies and Feedback)
• Identify how solutions can be implemented and who should take responsibility for different elements of a strategy aimed at achieving equality of travel opportunity in relation to travel (Chapter 5)

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