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2 TRANSPORT

Introduction

2.1 This section examines the provision of public transport services in Scotland to the extent that they are controlled or influenced by public bodies. The services covered include train, bus, taxi, ferry and air services. It also includes demand responsive transport services. This section also examines as far as possible the management of parking for disabled people, and the maintenance of pavements and road crossings.

Background: Wider Policy Context and Evidence

Wider policy context

2.2 Transport policy is set out in the Scottish Government's Transport Strategy published in 2006 (Scottish Executive, 2006b). The strategy identifies three key issues:

• Improved journey times and connections - making it quicker, easier and more reliable for passengers to travel between our towns and cities and across our global markets.
• Reduced emissions - making sure that Scotland takes a lead in the future of sustainable transport.
• Improved quality, accessibility and affordability - ensuring everyone across Scotland has high quality public transport choices.

The third of these issues impacts directly on disabled people although it embraces a much wider agenda.

2.3 The transport strategy is delivered by a range of partners who are subject to the disability equality duty.

• Scotland-wide issues relating to rail and road services are the responsibility of Transport Scotland which also has responsibility for rolling out the concessionary fares scheme.
• The seven newly created regional transport partnerships are now subject to the disability equality duty and were required to produce a disability equality scheme by December 2007. All of these partnerships have responsibility for developing transport strategies within their regions and supporting the implementation of them with a capital investment programme. Some of the partnerships are also responsible (or shortly will be responsible) for the management of service contracts for bus, ferry and air services and some of the infrastructure for these services.
• The thirty-two local authorities in Scotland also have responsibility for transport strategy within their area. For many, this includes awarding service contracts for subsidised bus routes and the provision of demand responsive systems such Dial-a-Bus. They are also responsible for licensing taxi services and have the discretion to run taxicard schemes. Local authorities are responsible for issuing blue badges to disabled people and parking policy at the car parks which they manage. Finally, local authorities are responsible for maintaining pavements and road crossing which also impact on mobility of disabled people.

Research and statistical evidence

2.4 A recent study entitled Improved Public Transport for Disabled People (Scottish Executive, 2006c) found that a disabled adult is 50% less likely to make any kind of trip on a day than is a non-disabled adult. The report goes on to say that the chief reason for this is difficulty travelling: 'almost three-quarters of disabled people or those with long-term limiting illness experience at least occasional difficulty travelling'.

2.5 These findings coroborate earlier research in England and Wales commissioned by the Disabled Persons Transport Advisory Committee ( DPTAC), entitled Attitudes of Disabled People to Public Transport ( DPTAC, 2002) which identified the same gap in travel frequency between disabled and non-disabled people. The Scottish Parliament Equal Opportunities Committee Inquiry into Disability (Scottish Parliament, 2008a) also found that much of the evidence they received endorsed the finding of these research projects.

2.6 The most common mode of transport used by disabled people is a private car (Scottish Executive, 2006a). However disabled people generally have poorer access to motor cars. The 2001 Census found that 60% of households with a disabled member had no access to a car while only 27% of households with no disabled member were without access to a car. Moreover statistics published in 2006 (Scottish Executive, 2006b) show that significantly fewer disabled people hold driving licences (44% compared to 72% of non-disabled people). The report goes on to say that possession of a driving licence has climbed consistently among non-disabled people since 1999, while the position for disabled people has remained broadly static.

2.7 There is also a variation in car use among those people who hold a driving licence. Fifty percent of disabled people who hold a driving licence drive every day, while 66% of non-disabled licence holders do so (Scottish Executive, 2006b). Fourteen percent of disabled licence holders never drive at all (5% of non-disabled people).

2.8 The Disabled Persons Transport Advisory Committee study ( DPTAC, 2002) also found that the most frequently used method of transport by disabled people was the private motor car. However they found that 85% of disabled people used the car as a passenger, while only 20% drove their own vehicle. This compared to figures of 66% and 85% for non-disabled people. The Scottish Executive research into transport among disabled people (Scottish Executive, 2006a) found that only 10% of journeys by disabled people were made as a passenger in a car.

2.9 Table 1 shows that bus use among disabled people is higher than by non-disabled people. The High Level Equality Statistics Report (Scottish Executive, 2006b) records that the Scottish Household Survey 2005 estimates that adults with a disability or long term illness are most likely to use a bus service twice or three times a week (15%) or every day/almost every day (13%). The comparatives figure for non-disabled people are 11% and 11%. Fifty-six per cent of adults with a disability or long-term illness have used a bus service in the previous month, compared to 42% of non-disabled adults. Since 2002, the most marked difference in frequency of local bus use is that the proportion of adults with a disability or long-term illness using the bus every day or almost every day has increased from 9% to 13%.

Table 1 Frequency of Using a Local Bus Service in the Past Month, People with a Disability/ Long-Term Illness (D) & People with No Disability/ Long-Term Illness (ND) Scotland, 2006

Source: Scottish Household Survey, 2006

2.10 However disabled adults are less likely to use the train service than non-disabled adults (Scottish Executive, 2006b), as illustrated in Table 2. Disabled adults are most likely to use a train service about once a month (5%), while 10% of those who are non-disabled do so once a month. Eight per cent of disabled have used a train service in the previous month compared to 22% of non-disabled adults. There has been little change since a previous survey in 2002.

Table 2 Frequency of Using a Train Service in the Past 6 Months, Adults with a Disability/ Long-Term Illness & Adults with No Disability/ Long-Term Illness, Scotland, 2006

Source: Scottish Household Survey -2006

2.11 Although there are no Scottish figures available for taxi use the DPTAC study ( DPTAC, 2002) found that taxis and private hire vehicles were the second most common mode of transport used by disabled people in England and Wales. Forty per cent of disabled people used this mode of transport at least monthly compared to 36% of non-disabled people.

Reporting on progress towards equality of opportunity

Introduction

2.12 The study, entitled Improved Public Transport for Disabled People (Scottish Executive, 2006c), concludes that making public transport more accessible to disabled people is a complex task, 'requiring a range of co-ordinated schemes and initiatives tailored to both the local physical environment, the needs of specific people in any local area and dovetailing with existing transport opportunities.'

2.13 Ultimate success might be measured by surveys which assess the frequency with which disabled people travel and which demonstrate a closing of the gap between the journeys they make compared to non-disabled people. Such measurement is not within the scope of any of the organisations considered in this report. However it is possible for organisations to record in their disability equality schemes measures they have taken to increase or improve travel options for disabled people and in many instances measure the impact of the steps taken. Disability equality schemes and annual reports reviewed for this report show some signs of improvement, and examples of good practice.

Areas where progress is evident

2.14 Progress is discussed for the two key providers of transport:

• Strategic transport bodies
• Local authorities

Strategic transport bodies

2.15 With the exception of two strategic transport bodies (Strathclyde Transport Partnership and ZetTrans); the regional transport partnerships have drawn up pan-equality schemes. These all identify transport barriers affecting disabled people. In general they draw on recent consultation responses to their draft regional transport strategies to inform their equality scheme. They acknowledge that more can be done and propose to establish a formal consultation network for disabled people.

2.16 Examples of good practice which can be highlighted include the following:

• Strathclyde Transport Partnership is considering researching the trip patterns of disabled people to gain a better understanding of their needs
• ZetTrans (through Shetland Isles Council from whom they inherited the work) has funded Disability Shetland to carry out an access survey of the ferry services which serve the islands
• Strathclyde Transport Partnership is investigating the need for a buddy system to help introduce disabled people to using the bus and subway systems in their area

2.17 Transport Scotland, in its contribution to the Scottish Government's scheme, notes the establishment of two advisory groups, the Scottish Rail Accessibility Forum and the Roads for All Forum. The former advises Transport Scotland on "new standards and requirements being proposed by the Department for Transport; ways that the rail sector in Scotland is able to support disabled people to use its services and how Transport Scotland can promote this; and the continuing roll-out of the GB-wide Access for All funding stream including the selection of stations for future development." Improving accessibility to Scotland's rail network remains a matter reserved to Westminster and funds to improve disabled access at train stations come from the UK government's Access for All programme. Transport Scotland is responsible for managing and delivering this programme in Scotland on behalf of the Department for Transport.

2.18 The Roads for All Forum has an overseeing role for the implementation of the Trunk Road Disability Equality Scheme and Action Plan. In Transport Scotland's contribution to the Scottish Government's Annual Report it is noted that both these fora meet regularly and provide helpful advice. The Scottish Rail Accessibility Forum has been particularly helpful in helping to revise the Code of Practice on Access to Stations. Transport Scotland report that they have revised the Scottish Transport Appraisal Guidance to integrate Equality Impact Assessment processes into the appraisal process for assessing all major rail and road projects. Other policy and project approval mechanisms are currently being reviewed to ensure that equality issues are adequately addressed, considered and recorded.

2.19 In its annual report, the Scottish Government noted its decision to include information about the accessibility of buses in the context of applications for the Bus Route Development Grant Scheme. This should help to increase the numbers of Disability Discrimination Act compliant buses in service.

2.20 Transport Scotland have also identified a range of statistics which they collect which could track progress in increasing travel opportunities for disabled people. These include:

• Eight stations have been allocated Access for All funds, although it is rather more important to record the number of stations where the work has been successfully completed.
• It would also be possible to record the number of stations benefiting from expenditure from the First ScotRail Minor Works Fund.
• Performance monitoring of First ScotRail includes some indicators of accessibility such as whether trains carry the portable ramp required by some disabled customers. Publication of this data would also be helpful.

2.21 Transport Scotland states in its contribution to the Scottish Government's annual report that it is undertaking an evaluation of concessionary travel in Scotland including the uptake and usage by disabled passengers. Data collection is underway and the final report is due in summer 2008. This data has the potential to assist local authorities in monitoring take up and use of the scheme in their areas and perhaps target investment in ways which will improve its effectiveness

Local authorities

2.22 Twenty-five local authorities identify transport as an issue of concern to disabled people in their disability equality scheme.

2.23 The schemes and annual reports include a limited amount of statistical data. However, with few authorities recording the same data it is not possible to draw comparisons, or establish trends. Examples of the statistics which have been recorded are:

• four authorities record data relating to taxis including details of the number of taxicards issued, the number of wheelchair accessible taxis licensed and the number of taxi drivers trained
• one authority records an increased number of routes operated by buses compliant with the requirements of the Disability Discrimination Act ( DDA)
• another authority gives detailed information about the number of trips taken on demand responsive transport services
• two authorities give information on the number of crossings improved to make them more accessible, and
• two authorities record expenditure on improvements to increase accessibility of pavements and crossings

2.24 A number of authorities record considerable efforts to involve disabled people in identifying the priorities for their scheme. In addition to consulting local organisations of disabled people they have organised focus groups, carefully structured public meetings and carried out surveys. They have also drawn on the results of previous survey work. This commonly leads to transport being identified as a key concern. Some of these concerns are reflected in actions recorded in the action plan which should help remove barriers facing disabled people who wish to travel. These are listed below by mode of transport:

Buses

• Angus Council proposes to amend the contracts for the bus services they fund to require the use of Disability Discrimination Act compliant buses subject to resources being available. No information on the implementation of this action was included in their first annual report.
• Highland Council records that additional points are awarded in the tender assessment process to companies who propose to use Disability Discrimination Act compliant buses on contracted services. Their annual report proposes to establish mechanisms to measure the proportion of low floor buses which operate in their area.
• Glasgow proposes to trial audible announcements at bus stops to assist people with visual impairments.
• Travel Dundee became the first municipal operator in Scotland to become 100% low floor in October 2004 (other companies operate in the city which do not run low floor buses so it cannot be said that all the buses in the city are accessible).

Taxis

• South Ayrshire notes that during its involvement meetings with disabled people they received complaints about some taxi drivers refusing to carry electric wheelchairs. They propose to bring this to the attention of Ayr College which delivers training for taxi drivers. Their annual report records that disability awareness is now a mandatory part of the training.

Pavements and crossings

• In response to comments from disabled people while preparing the plan, North Ayrshire has committed £0.3M to fund a programme of pavement and crossing improvements. The routes to benefit are to be chosen in consultation with disabled people.
• Also to be noted in this section is the Road Safety Scotland Publication a2b safely (Road Safety Scotland 2007), an interactive website designed to educate pupils and students with additional learning needs on the dangers faced by traffic on Scotland's roads

2.25 In summing up, it is difficult to assess the achievement of measurable progress because no numerical targets are set in the first round of actions plans. Most of the local authority schemes do not present enough detail about transport to allow a full assessment of progress towards equality of opportunity. This is not necessarily a criticism: the disability equality scheme is a summary document covering all aspects of council services. Nevertheless, there is evidence of positive activity, particularly in relation to:

• The frequent identification of transport as a key issue of concern to disabled people.
• The recognition of the importance of encouraging the use of Disability Discrimination Act compliant buses.
• The number of authorities which recognise the importance of the street environment as a significant part of the transport experience of disabled people.

Areas where progress is less evident

2.26 Areas where progress is less evident are discussed in relation to the two key providers of transport:

• Strategic transport bodies
• Local authorities

Strategic transport bodies

2.28 Regional transport partnerships are new bodies and a number of them have very few staff. They became subject to the disability equality duty requirement to publish disability equality schemes in December 2007. Given this early stage, the schemes they have developed do not present enough detail to allow a full assessment of progress towards equality of opportunity.

2.29 In their strategic role the regional transport partnerships would be ideally placed to encourage links between demand responsive transport services and mainstream public transport as suggested in the Improved Public Transport for Disabled People report (Scottish Executive, 2006c), but this is not highlighted in their schemes.

Local authorities

2.31 Local authority disability equality schemes do not always clearly demonstrate how equality of opportunity for disabled people in transport issues is being approached. In such complex organisations with a wide range of functions, it is perhaps understandable that schemes may lack detail in some of the issues they address.

2.32 An intention to tackle the transport needs of disabled people may be clear, however, it may not be clear what measures have been identified to take forward the issues.

2.27 The statistics used in disability equality schemes and annual reports do not demonstrable progress in overcoming barriers to disabled people using transport services. There are occasions when statistics which show real progress are omitted from schemes. For example, as noted above, Dundee recorded that all the buses operated by Travel Dundee are low floor, but omit the information that of 980 bus stops in the city, only two are not considered accessible. In addition, a further programme of work is underway to prevent cars parking in bus stops which makes it impossible for some disabled people to board the bus. This latter information was provided by National Express when asked to comment on the report of the Equal Opportunities Committee Inquiry into Disability (Scottish Parliament, 2008b). The two pieces of evidence together demonstrate a high level of accessibility of bus services in the City.

2.34 In summary, it is difficult in a number of areas to make an assessment of progress because the data are not being collected, or if they are, they are not been included in the schemes and annual reports.

Categories of impairment

2.35 The vast majority of local authorities include a statement of the definition drawn from the Disability Discrimination Act, often followed by a statement of support for the social model of disability.

2.36 As is often the case when discussing transport accessibility, the examples of the problems to be addressed generally focus on the needs of people with mobility impairments. The most commonly mentioned issue (in fourteen schemes) is parking, which affects people with mobility impairments who have access to a car. In general the debate about improving the pedestrian environment appears to focus on the needs of wheelchair users; for example one local authority specifically asked its access panel to consult wheelchair users. This overlooks the very important impact of the street environment on people with visual impairments.

2.37 Two local authorities make specific mention of the needs of people with learning disabilities when using public transport, but do not include actions in their action plan which might address these concerns.

2.38 The five regional transport partnerships which have produced pan-equality schemes do not include a definition of disability. They refer to promoting access to public transport for equalities groups but there is no reference to what this might mean in terms of specific actions to address the barriers faced by disabled people with particular access needs. For example, none refer to the important impact that driver behavior can have on people with learning disabilities and propose measures related to driver training. Strathclyde Transport Partnership on the other hand includes a number of initiatives to assist people with visual impairments, such as providing descriptions of some of the stations on the underground system on 'describe online'. Transport Scotland's monitoring of the First ScotRail franchise includes the provision of an induction loop and ensuring that visual and audible information systems are operational.

Consultation and involvement

2.39 A number of authorities record considerable efforts to involve disabled people in identifying the priorities for their scheme. In addition to consulting local organisations of disabled people, they have organised focus groups, carefully structured public meetings and carried out surveys. They have also sensibly drawn on the results of previous survey work. This commonly leads to transport being identified as a key concern.

2.41 The transport partnerships rely heavily on the outcome of consultation on their draft regional strategies to inform the development of their equality schemes. Only Strathclyde Transport Partnership reports any additional involvement activity. It should be noted that the Community Transport Association gave the following evidence to the Equal Opportunities Committee Inquiry into Disability:

I am hugely concerned about the consultation meetings on the regional transport strategies, because equal opportunities issues have not come up in any of the meetings that I have attended. (Scottish Parliament, 2006b)

As noted at paragraph 2.15, the transport partnerships have acknowledged that they need to do more to consult and involve disabled people and propose to establish a formal consultation network for disabled people.

Summary and conclusions

2.42 Local authorities and the regional transport partnerships have recognised from their various consultation and involvement activities that transport is a key concern for disabled people. A number of these organisations have included actions in their schemes and action plans which are intended to respond to these concerns.

2.43 At this stage, the first round of disability equality schemes and annual reports examined for this report do not clearly show how the proposed measures will remove the barriers which result in disabled people travelling so much less than non-disabled people are being addressed

2.45 It isn't always clear how disability equality schemes are developing the strategic actions necessary to implement the solutions identified by in the report on Improved Public Transport for Disabled People (Scottish Executive, 2006c). Greater coordination of action areas across organisations might be needed, along with a clearer presentation of activity.

2.46 The purpose of the Disability Equality Duty was to stimulate a concerted approach by the public sector to overcome the barriers which exclude disabled people from society. It still represents an opportunity to take forward the report's recommendation that:

"a coherent and comprehensive strategy for achieving equality of mobility should be an integral part of National, Regional and Local Transport Strategies rather than being separate or add-on".

2.47 To do so, more effort is needed to link barriers identified by disabled people to actions which will assist in overcoming them. As a first step statistics which can measure real improvements in accessible transport systems for disabled people could be developed and used.

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