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CHAPTER FIVE: HOW SHOULD WE ADDRESS THESE PRIORITIES?

5.1 The Scottish Government expects that actions to address priorities will include a focus on the following areas:

• education
• engineering
• enforcement

5.2 Work has been, and is being done by, a range of agencies to address the issues mentioned in Chapter 4. The activities include education and publicity initiatives targeted at certain groups with the aim of raising awareness of particular issues: the enforcement of road traffic law, such as speeding and drink-driving; engineering schemes designed to slow traffic and improve safety for pedestrians and cyclists; and improvements to roads and vehicles.

5.3 Consultees were invited to address these 3 key areas and 92 responses (98%) contained comments on addressing priorities. Across all the comments received, 86% of consultees commented on education, 71% on engineering and 75% on enforcement. The following sections focus on each of the 3 areas.

EDUCATION

5.4 Three in 4 consultees (86%) responding to the consultation highlighted education in response to the question 'How should we address these priorities?'. These comments came from 55 organisations and 14 individuals. Chart 5.1 presents the top 5 suggestions:

Chart 5.1
Theme 2: How should we address these priorities? - Education

Base: 92 consultees

5.5 The following sections discuss these points further. Within each section, we have identified a number of sub-themes.

Post-test continuing driver education

5.6 Chart 5.1 shows that continuing driver education was a suggestion from around one in 4 consultees (26%) as a method of addressing the highlighted priorities. Twenty-two organisations and 2 individuals commented on this issue. As the following quotations note, testing needs to take account of the skills needed for driving, and some consultees noted that the current driving test is limited because it does not cover all driving situations; for instance, night-time or motorway driving. One safety organisation suggested the current driving test should be more challenging and extended to ensure competence in a wide range of road and weather conditions. A police organisation was of the opinion that the driving test needs to be changed and become a two-part practical test with one part covering rural roads and the other town driving.

5.7 The following quotes represent typical responses:

"Education should be ongoing and testing not considered as a one-off exercise to provide a licence for life… There may be a need to re-test those that have not either driven a car or motor cycle for a significant period... Testing should take account of the driving skills needed to use our roads and not necessarily the skills needed to pass a test."
(Transport Organisation)

"Education is the key to improving road safety and all drivers should be educated."
(Transport Organisation)

5.8 In addition to the Pass Plus training scheme and Safe Drive Stay Alive highlighted in the consultation document, consultees also made reference to the Institute of Advanced Motorists ( IAM)/The Royal Society for the Prevention of Accidents ( RoSPA) advanced driver training courses and suggested that these courses would be of benefit to post-test drivers. Consultees felt these schemes "should he promoted to recently qualified drivers" (local authority) and "to drivers of all ages, but primarily young men" (local authority); the aim of which would be to improve drivers' behaviours and attitudes. The issue for funding for such schemes was mentioned by a few consultees and one local authority noted:

"Any initiative developed and implemented must be informed by research."
(Local Authority)

5.9 One transport organisation specifically highlighted the need for motorcyclists to also undertake extra training on courses such as the IAM advanced test for motorcyclists to deal with not just basic skills but also attitudes.

5.10 In addition to the above named initiatives, a small number of organisations suggested that consideration should be given to graduated licensing schemes for new/young drivers. One local authority recommended "no passenger for the first year"; an individual thought it would be beneficial if there were graduated licences for young people, for example, they must be accompanied by a fully qualified driver if carrying passengers.

5.11 A further post-test proposal suggested by 2 consultees was "to introduce mandatory P plate usage to cover new drivers ( i.e. for first 12 months)" (local authority).

Change Driver Behaviour/Driver Responsibilities

5.12 As shown in Chart 5.1, 24% of consultees felt that changing driver behaviour and promoting safety attitudes would assist in addressing the priorities. In total, 21 organisations and one individual felt that education was needed in order to change driver behaviour and encourage drivers to take responsibility for their actions.

5.13 A small number of consultees (3 transport and one safety organisation) commented specifically on driver responsibility. Overall, the general consensus was that more responsibility needs to be placed on motorists. One transport organisation noted:

"There is clearly a need for some motor vehicle drivers, who have little regard for their own safety, to take greater responsibility for their actions and the effects they have on other road users."
(Transport Organisation)

5.14 The issue of driver behaviour was raised by a number of consultees (2 transport, one police, one health, one charity). As described by one, "It is driver behaviour that is responsible for the overwhelming bulk of casualties on our roads (one charity). One transport organisation highlighted areas where education should be a focus:

"As the consultation acknowledges, driver behaviour can be a significant factor in road accidents. Efforts to address drink or drug-driving, travelling at excessive speed (particularly young male drivers), awareness of other road users (including pedestrians and cyclists), tiredness and child safety are key areas for action."
(Transport Organisation)

5.15 Two consultees (one transport and one health organisation) expressed an interest in the issue of psychology and driver behaviour. It was felt that, the longer people drive using bad behaviours such as speeding, the more those behaviours are reinforced and the lower the risk is perceived to be. One suggestion by a transport organisation was to utilise specialists in psychology to support the development of programmes. However, as a charity organisation noted, "research is needed to explore this technique further".

Road safety training for all/Marketing events and training

5.16 As illustrated in Chart 5.1, one in 5 consultees (20%), including views from 4 individuals and 14 organisations, highlighted the need for road safety training for everyone encompassing targeted marketing and events.

5.17 There was widespread agreement among consultees that the priorities should be addressed by "Educating all categories and all ages of road users as to the safest way of using the road network" (Local Authority). Education was considered vitally important and the key to improving road safety.

5.18 Five consultees (one local authority, 3 safety, one police organisation) emphasised the importance of parental involvement when educating children and young people on the issues of road safety and the importance of parents setting a good example. One local authority suggested there should be:

"More engagement with parents who can be responsible for young drivers picking up bad behaviour."
(Local Authority)

5.19 Another local authority noted:

"It is vital that children are active learners in their road safety skills, and parents and carers have a key role to play in this. We must continue to provide appropriate and relevant information and support the parents and carers of pre-5 children in order that good road user behaviours and attitudes are developed at an early age. Parents and carers should be made aware that their own road user behaviours and attitudes have the greatest influence on their child's present and future behaviours and attitudes as a road user."
(Local Authority)

5.20 A safety organisation commented on differences between socio-economic groups and felt that there needed to be advice and education for parents in lower socio-economic groups as:

"Good parental example cannot be assumed, particularly in some of the more deprived areas, where education standards and child supervision for a variety of reasons are often at lower levels than is commonly the case in more affluent areas."
(Safety Organisation)

5.21 A total of 9 organisations (6 local authorities, 2 police and one organisation representing young people) felt that publicity and training events can influence road user behaviour and reduce casualties. Indeed, while there is already a vast selection of road safety resources such as leaflets, websites etc, one respondent noted:

"there should be better targeted educational programmes and adverts towards priority groups"
(Local Authority)

5.22 Another local authority also suggested there should be conferences and promotional events to raise road safety awareness amongst motorcyclists.

5.23 However, this issue of how to get these messages across was highlighted, with one respondent noting:

"it can be difficult to get the message across to those most in need of improvement"
(Local Authority)

and another that:

" developing and implementing good marketing campaigns can prove expensive"
(Transport Organisation)

Road safety as part of the curriculum

5.24 Seventeen percent of consultees were of the opinion it is essential that road safety be included as part of the school curriculum at all stages. This comprised responses from 2 individuals and 15 organisations. One of these consultees was of the opinion that:

"Early intervention with the road safety message to future road users is essential… attempting to change young road users' opinions once they reach the driving age is extremely challenging."
(Police)

5.25 A number of suggestions was provided as to how this issue should be tackled, and these included:

• Introducing nursery pupils to road safety and, thereafter, compulsory teaching to all primary school age groups (Police)
• Targeting primary and early secondary school children to cultivate and strengthen attitudes to road safety, continuing funding and support for School Travel Planning (Local Authority)
• Classroom sessions and exam before/while learning to drive (Local Authority)
• Simplify versions of the Highway Code. Include practical road training in a safe environment, including cycling proficiency (Individual)

5.26 The issue of pre-driving programmes was the main focus of one of these responses from an organisation representing young people.

Educate young drivers/those about to drive

5.27 A consistent theme emerging across the consultation was that young drivers must be considered a priority (52% of consultees felt this was the case). Educating young drivers was deemed by 16% (3 individuals and 12 organisations) as a method of addressing this priority. Consultees who favoured education as a method of informing young drivers/those about to drive were in support of:

• Driving initiatives
• Teaching road safety at schools
• Involving parents in road safety education
• Post test training.

5.28 Table 5.1 provides a list of other suggestions made by smaller proportions of consultees (between 9% and 15%) on how the priorities should be addressed in terms of education. Reference was made to the need to reduce road casualties, strengthen the Driving Standards Agency ( DSA) test, use pre-driving programmes, involve parents in road safety education, prioritise young male drivers, educate child pedestrians and target inappropriate speed.

Table 5.1
Theme 2: How should we address these priorities? - Education

5.29 Other comments made by smaller numbers of consultees (less than 9%) were:

• Drink-driving campaigns/education
• Education for occupational drivers/advanced training
• Concern for the environment - eco driving awareness/reduce emissions
• Motor cyclists - more stringent training/tests/encourage advanced training/Bike plus
• Elderly drivers/lapsed drivers - retest/licence renewal
• Awareness of drivers for cyclists/motorcyclists/horse riders
• Encourage sustainable transport
• Target drink culture/acceptability in some areas of drink-driving
• Drug-driving campaigns/education
• Safe cycling to school
• Safe walking to school/walking trains
• Discourage school run
• Managing occupational road risk/increased truck stops/alternative transport etc
• Elderly pedestrians (advice/education)
• Reduce vehicle usage
• Elderly drivers (advice/education)
• Safety of motorcyclists (visibility/awareness/road surfaces)
• Encourage use of public transport
• Foreign drivers (different attitudes re drink-driving/disproportionately high accident stats)
• Audit routes to school/school travel planning
• Effective targeting of vulnerable groups
• First aid as part of road safety training (esp for motorcyclists)
• Cultivate road safety culture/safe/considerate driving culture/Good Driving Practice Awards
• Migrant workers drivers (different attitudes re drink-driving)
• Helmet wearing/protective clothing/visibility issues
• Animal collisions - driver education/awareness
• Guidelines for motability scooters
• Don't encourage children to play in street
• Cyclist safety.

ENFORCEMENT

5.30 In response to the question 'How should we address these priorities?' 75% of consultees made reference to the enforcement of road traffic laws. This included 12 individuals and 46 organisations. As shown in Chart 5.2, key themes emerging were:

• Reduce drink-driving limit
• Greater traffic police presence/traffic enforcement
• 20mph limits for schools/residential areas
• Enforce speed limits
• Review spend limits

Chart 5.2
Theme 2: How should we address these priorities - Enforcement

Base: 92 consultees

5.31 The following sections discuss these points in more detail. Within each section, a number of sub-themes has been identified.

Reduce drink-driving limit

5.32 Just under one in 4 consultees (23%) were of the opinion that the drink-driving limit should be reduced (21 organisations). This issue has already been discussed in Chapter 4 and comments emerging echoed those in the earlier chapter.

Greater police presence/traffic enforcement

5.33 Twenty-two percent of consultees would like to see a greater police presence on Scotland's roads (3 individuals, 17 organisations). Where additional comments were given by consultees on this issue (2 local authorities, 2 police, one individual, one safety and one transport organisation), the general consensus was that there should be an increase in the number of police officers available to enforce road traffic legislation. One transport organisation stated:

"Many of the laws are being disregarded by road users and the police have finite resources. The cost of accidents is very high and it could prove more cost-effective to pay for additional policing and reduce casualties."
(Transport Organisation)

5.34 One local authority noted that, while safety cameras can play a significant role in reducing speeding, they cannot detect any other motoring offences such as poor or dangerous driving, use of drugs or drink, un-roadworthy vehicles etc. This organisation felt that there should be more resources made available for roads policing in order to detect and deter these offences.

5.35 Four consultees referred to the enforcement of traffic laws. One charity felt "greater priority should be given to ensuring traffic law enforcement and road crime reduction are priorities of the police" and a transport organisation that "tackling bad driving behaviour should be backed by stronger and better enforcement of traffic laws". In addition, one individual suggested priorities can be met by setting up a "Road Traffic Management team with enforcement powers, including making of legislation which can be enforced". Additionally, one individual noted that Scotland needs a traffic police force which is dedicated to road safety issues and that has more visibility on the roads.

Enforcement of speed limits/20 mph Speed Limits

5.36 Seventeen percent of consultees (3 individuals and 13 organisations) were of the view that enforcement is a key tool in addressing speed limits.

5.37 A number of approaches was suggested as to ways in which the priority of speed limits should be dealt. While these focus primarily on enforcement issues, some consultees also noted the need to ally education with enforcement. Methods by which traffic speeds/appropriateness of speed limits could be addressed included:

• Increased use of speed indication devices in urban areas
• Enforcement of current speed limits
• Review of penalties
• Review of appropriateness of speed limits
• Education through driver behaviour
• Greater use of media campaigns to reinforce the message.

5.38 Eighteen percent of consultees (13 organisations and 4 individuals) wanted to see the speed limit lowered to 20mph in school/residential areas to help achieve safer conditions for pedestrians and reduce deaths and injuries. "Implemented speed restrictions in such streets need to be enforced on a regular basis" maintained one individual. One transport organisation further noted:

"Make 20mph or lower speed limits the norm for residential streets and those used by shoppers, tourists, and others close to schools or public buildings, or important for walking and cycling or children's play. In urban areas only the busiest strategic traffic routes should now qualify for higher speed limits."
(Transport Organisation)

Review speed limits

5.39 Seventeen percent of consultees were of the opinion there should be a review of speed limits (14 organisations and 2 individuals). One safety organisation noted:

"A fundamental review of speed limits should be considered and the outcome of previous reviews implemented by engaging in a debate with the public that helps to make safer behaviour acceptable. As part of such a review there would be merit in considering existing limits which may not now be appropriate as well as the possibility of more adjustable speed limits to cater to different times of the day or traffic conditions."
(Safety Organisation)

5.40 Two transport organisations referred specifically to Heavy Goods Vehicle ( HGVs), with one of these organisations suggesting changing the current 40mph for HGVs to 50mph on those single carriageway roads where the posted speed limit is 60mph (but retaining the 40mph restriction on single carriageway roads where the posted speed limit is 50mph).

5.41 The 20mph speed limit for residential areas was also mentioned and one other organisation suggested the strategy should include a "new hierarchy of speed limits: 10 mph in Homezones and around schools; 20mph on residential roads and major shopping streets; 30mph on all roads in built-up areas including villages, and appropriate limits on all other roads depending on their condition and layout."

5.42 Table 5.2 provides a list of 'other' suggestions on how priorities should be addressed. These relate specifically to enforcement and were provided by between 16% and 5% of consultees. Suggestions from consultees included the need to review legislation, enforce restrictions on passenger numbers and engine size for new drivers, and regular eyesight tests.

Table 5.2
Theme 2: How should we address these priorities? - Enforcement

5.43 Other comments made by smaller numbers of consultees (less than 5%) were:

• Cycle training - adults/enforce road laws
• Reduce vehicle usage
• Tackle illegal parking
• Motorcyclists - safety clothing
• Aggressive driving
• Penalties for employers (to stop encouragement of unrealistic schedules/excessive hours)
• Rigorous enforcement of current regulations
• Target dangerous driving
• Enforce use of seatbelts
• Penalties for pedestrians (for not using controlled crossings etc)
• Allow motorbikes to use bus lanes - reduces collisions.

ENGINEERING

5.44 Just over 7 in 10 consultees (71%) responding to the consultation made reference to engineering in response to the question 'How should we address these priorities?' This number consisted of 47 organisations and 15 individuals. Chart 5.3 presents the top 5 suggestions:

Chart 5.3
Theme 2: How should we address these priorities? - Engineering

Base: 92 consultees

5.45 The following sections discuss the top 4 suggestions further. Within each section, a number of sub-themes has also been identified.

Improved road design/engineering

5.46 Thirty-five percent of consultees referred to improved road design/engineering when asked the question ' How should we address these priorities?' This consisted of 26 organisations and 6 individuals.

5.47 Engineering was recognised by consultees as having an important part to play in road safety. "There is considerable research evidence suggesting that improving the road environment through safer road design has the greatest potential to reduce casualties" was noted by one local authority. When discussing how to address this issue, the majority of comments tended to focus on traffic calming measures, rural roads and funding.

5.48 Six consultees (2 individuals, 2 police, one transport and one safety organisation) discussed engineering in terms of how this impacts on the reduction of speeding. According to one transport organisation "the design of roads influences drivers and their behaviours". The following quote illustrate these points:

"I suggest that there is an urgent need to address the culture of speeding on Scotland's roads by employing all of the 3 Es, especially through traffic calming measures implemented primarily by road engineering combined with vigorous and sustained enforcement of speeding legislation."
(Individual)

5.49 The 3 Es referred to in the above quote are the headings of Education, Engineering and Enforcement which are discussed in the consultation document.

"Engineering is also an important part of road safety in relation to signage, road surface conditions, and other things such as 20mph zones, traffic calming etc."
(Police)

5.50 In addition to traffic calming measures, one local authority referred to the general maintenance of roads, stating that that the lack of proper maintenance can present drivers with many additional hazards such as worn surfacing leading to increased skid risk, potholes, worn road markings and signs, flooding from blocked drains and lack of gritting in winter, all of which can increase a driver's risk of becoming involved in a road accident.

5.51 Five consultees (3 local authorities, one police and one safety organisation) specifically referred to rural roads/trunk roads in terms of the engineering processes required such as signage; ensuring road surface is good, placing barriers, if necessary, at danger areas.

"There is considerable research evidence suggesting that improving the road environment through safer road design has the greatest potential to reduce casualties. The use of passively safe roadside furniture, increased roadside protection along with improved signing and markings could significantly contribute to reduce accidents on rural roads."
(Local Authority)

5.52 As one safety organisation explained, "rural roads are less likely to have been treated with safety engineering schemes than urban roads".

5.53 Six consultees (5 local authorities and one individual), while supporting the need for engineering measures, pointed out the need for funding. Two local authorities specifically referred to the Society of Chief Officers of Transportation in Scotland ( SCOTS) and their estimation that £1.8bn is needed to improve Scotland's roads to full standard.

"It would be unreasonable to expect Councils to be able to fund a fast-track maintenance programme. Clearly, funding streams need to be identified to bring roads up to standard and reduce accidents caused by poor skid resistance and uneven road surfaces."
(Local Authority)

"Making major road improvements, such as the example given in the consultation, requires substantial funding."
(Local Authority)

Engineering technology advances

5.54 As shown in Chart 5.3, one in 5 consultees (20%) believed priorities can be addressed by making use of engineering technology advances. Those who commented included 3 individuals and 15 organisations. Of those who provided comments, one local authority was of the opinion that the priorities should be addressed by "increasing the use of new technology to deter speeding, red light running and parking offenders". Another local authority also felt technology was vital, but was concerned about the cost involved in this:

"Engineering technology is vital in managing a modern transport system. However, local authorities are unlikely to be able to afford the best that is on the market due to current limits on funding and competing priorities."
(Local Authority)

Need for the identification of hotspots/problem areas/roads

5.55 Seventeen percent of consultees (comprising 14 organisations and 2 individuals) felt the priorities can be addressed by identifying and improving hotspots and problem areas/roads. While most consultees did not provide more detailed information in relation to this issue, some referred to the funding of/investment in engineering solutions; the increase of traffic on roads due to the school run; the importance of carrying on road improvement at locations where the more severe crashes take place; the reduction of single track roads and the identification of crash hotspots.

More average speed cameras/flexibility in placing speed cameras

5.56 Around one in 6 (16%) consultees were of the opinion that priorities can be met by increasing the number of speed cameras, especially in locations where accidents have occurred:

"Investigate the feasibility of increasing the use of average speed cameras, both on the main routes and in residential areas."
(Local Authority)

5.57 One transport organisation stated that they welcomed the "Scottish Government's enduring commitment to the Safety Camera Programme where this will continue to deploy the full range of detection equipment available (including mobile sites and dedicated monitoring of red light running) to help reduce the number and severity of accidents by influencing driver behaviour with regard to speeding."

5.58 Two local authorities noted that existing rules for the placing of cameras are very prescriptive, particularly in regard to the speed criterion and suggested more local flexibility should be permitted.

5.59 Table 5.3 provides a list of 'other' suggestions on how the priorities should be addressed in terms of engineering. Consultees made reference to the need for traffic calming in residential areas, to limit top speeds, provide verge and pavement maintenance, improve public transport, consider the role of manufacturers/retailers, to provide safer crossings for children and reduce congestion.

Table 5.3
Theme 2: How should we address these priorities? - Engineering

OTHER SUGGESTIONS ON HOW TO ADRESS THE PRIORITIES

5.60 While most responses to the question 'How should we address these priorities?' related to education, enforcement and/or engineering, some comments were also made that did not fit one of these specific themes.

5.61 Table 5.4 provides a list of 'other' suggestions on how the priorities should be addressed. The issue of utilising research or statistics-based information was highlighted by 20% of consultees noting the need for statistics and research to be utilised for evidence-based campaigns, 12% noting the need to examine crash and casualty statistics and 7% noting the need for accurate statistics and data collection.

5.62 The issue of funding was also highlighted, with 16% of consultees noting that funding was needed for initiatives and road safety improvements, and 7% noting that funding and resources are needed to take necessary action.

Table 5.4 - Other suggestions
Theme 2: How should we address these priorities? - Other comments

5.63 The consultation document describes the European Road Assessment Programme ( EuroRAP) which is testing roads throughout Europe with the aim of assigning consistent safety ratings to European roads. Four organisations highlighted this programme in their response to this part of the consultation, with one transport organisation welcoming the work of EuroRAP. Two consultees, from the local authority sub-group, saw the need for additional funding from the Scottish Government to "to enable local roads authorities to identify their priority routes for improvement". One safety organisation provided information on the maps EuroRAP has produced crash protection on some stretches of our roads and on independently set safety performance levels for our roads. This organisation commented that the Scottish Government might "consider being an early adopter in setting objective performance standards for safety".

In summary:

A majority of consultees referred to the key themes of education, enforcement and engineering and, in many instances, recognised the need for these to sit alongside each other. Under each of these themes a wide range of sub-themes also emerged.

Additional key issues raised by consultees related to the need for funding for various initiatives that could be adopted, as well as the need to record and use statistical data collection.

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