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A WALKING STRATEGY FOR SCOTLAND

3. NATIONAL OBJECTIVES AND TARGETS

The National Picture

3.1 The aim is to see more people making walking their first choice for short journeys and making more trips over longer distances by a combination of walking and public transport.

3.2 The Scottish Walking Forum considers that there is benefit in setting national aspirational targets. These will provide guidance and direction to local authorities as they implement their walking strategies.

• The short term target is to halt the decline in the number of journeys per person made on foot.
• The longer term target is to achieve an increase of 10% in the number of journeys per person made on foot by 2012.

3.3 The focus of these targets is functional walking, that is walking trips which are made with the purpose of going somewhere such as work, school, shopping or visiting friends. However, in practice it is often difficult to isolate functional and recreational walking. A walk to the local shops may be a functional trip, but the motivation behind the mode of travel may be that a pleasant walk in the sunshine is enjoyable in itself.

3.4 The baseline figures for both the short and long term target are found in Scottish Transport Statistics No.21. They show that:

• The average number of trips made on foot per person per year for the period 1998 to 2000 was 302 (table 12.1)
• 13% of adults walked to work in 2001 (table 12.14).
• 52% of children walked to school in 2001 (table 12.15).

Annex B taken from Scottish Transport Statistics No. 21 gives further information on travel mode statistics

The Policy Framework

3.5 The White Paper Travel Choices for Scotland sets out the framework for change and emphasises a commitment to the development of more sustainable, better integrated transport systems. It underlines the fact that walking should be regarded as a normal means of transport in both rural and urban areas and emphasises that walking must be considered at the earliest stages in transport and other developmental planning.

Links with other policies

3.6 The promotion and development of walking as a more widely accepted means of transport for shorter journeys is supported by national commitments from a range of other policy agendas such as those outlined below.

Land Use Planning

3.7 Planning authorities when preparing Structure and Local Plans should pay full regard to the advice contained in all National Planning Policy Guidelines (NPPGs) and Planning Advice Notes (PANs).

3.8 The key NPPG is NPPG17 Transport and Planning and accompanying PAN57 Transport and Planning both published in 1999. NPPG17 focuses on sustainability and the need for careful planning of settlement locations and public transport linkages. NPPG 17 recommends that for individual travel the general hierarchy of priorities should be walking first followed by cycling then public transport and lastly private cars. Local authorities through their responsibilities for the land use planning system should place greater emphasis on enabling and enhancing access by walking, as well as cycling and public transport.

3.9 Other NPPGs are:

• NPPG3 Land for Housing which deals with access in terms of improving local environmental quality.
• NPPG11 Sport and Physical Recreation which provides guidance in relation to safeguarding parks and open spaces for public recreation. The NPPG also refers to the provision of access to such facilities.
• NPPG14 Natural Heritage is also relevant in a broad sense in that it deals with promoting the enjoyment and understanding of the natural heritage of Scotland.

Health

3.10 The Scottish Executive is committed to improving the health of the people of Scotland. Physical activity contributes to achieving that aim. Some people think about getting active as getting fit and assume that it means vigorous physical activity. That is not the case. Moderate activity, such as brisk walking at 3-4 mph, is an ideal way to increase levels of physical activity. The Scottish Health Survey shows that most people in Scotland are not active enough. For example:

• 72% of women and 59% of men are not active enough for health (i.e. doing 30 minutes of moderate activity on most days of the week).
• even among children, 27% of boys and 40% of girls are not active enough to meet the guidelines for children (1 hour a day of physical activities on most days of the week).

3.11 Inactive people (those who do not meet levels) face serious health risks. They have:

• twice the risk of coronary heart disease than active people.
• higher blood pressure — which in itself is a major risk factor for coronary heart disease.
• a higher risk of colon cancer — 3.6 times more at risk than active people.
• a higher risk of developing Type II diabetes — regular activity can reduce risks of Type II diabetes by 50%.
• lower bone density leading to a higher risk of osteoporosis leading to fractures — up to 50% of hip fractures could be avoided with regular physical activity.
• a greater risk of being overweight or obese — which also increases risks of other types of cancer as well as osteoarthritis and back problems.
• more injuries and accidents.

3.12 More positively, active people have:

• a longer life.
• Less risk of developing many diseases.
• Greater well-being.
• Fewer symptoms of depression.
• Lower rates of smoking and substance abuse.
• More ability to function better at work and home.

3.13 The Physical Activity Task Force Strategy ‘Let’s Make Scotland More Active’ has recommended targets for 2020 that 80% of children and 50% of adults will meet the minimum levels required for health. The Scottish Walking Strategy has an important role to play in contributing to the achievement of this target.

School Travel

3.14 There are strong reasons to encourage children to walk or cycle short distances to school for their health, education and social development. The Scottish Executive is encouraging all those involved in school travel to work together on the "Safer Routes to School" initiative. In December 1999 the Executive published Guidance on How to Run Safer Routes to School. This is a toolkit of measures for use by all involved in school travel to enable them to turn their ideas into reality.

3.15 In January 2000 a UK School Travel Advisory Group (UK STAG) was set up to look at all aspects of school travel with a view to increasing the numbers of children who walk, cycle or use public transport to school. Officials from the then Scottish Office were members of STAG which reported in January 2000. Following devolution a Scottish School Travel Advisory Group was set up in July 2000. The Scottish STAG has worked to identify practical ways of reducing car use on the school run and to ensure that policy and initiatives affecting school travel are integrated across the fields of transport, health and education. Membership of the Group reflects these interests and priorities, plus business and local authorities (both transport and education officers) as well as parents, teachers and members of school boards. The recommendations of this Group when published will be a useful source of information and advice.

Road Safety

3.16 Improving safety is one of the Scottish Executive's priorities in transport. Fatal and serious casualties in Scotland in 2000 were 56% below the average for 1981-85, much better than the target of a one-third reduction. Pedestrian fatal and serious casualties fell by 62% for adults and 63% for children. However, the downward trend should not make us complacent.

3.17 In 2000, the Scottish Executive announced ambitious new targets for accident reduction. By 2010 we want to see a 40% overall reduction in the number of people killed or seriously injured and a 50% reduction in the number of children killed or seriously injured, compared with the average for 1994-98. Local authorities will wish to consider how they can use their local walking strategies to contribute to the casualty reduction targets.

Leisure

3.18 Walking is the most popular recreational activity in the UK, and a number of agencies and authorities have provision for public recreation and enjoyment of the outdoors as part of their remit. The quality of the Scottish countryside is a key motivator for residents and visitors alike, and the provision of a welcoming and accessible countryside with amenities and systems in place to sustain this valuable resource is essential. Local authorities play a key role as managers of areas of public open space in and around settlements, as custodians of public rights of way, and as negotiators with other land owners with regard to public access. Much work has been carried out to improve public access and many examples of partnership working can be found, for example with Scottish Natural Heritage. The Paths for All Initiative brings together public bodies, recreational groups and land managers’ representatives in pursuit of the goal to facilitate the creation of local path networks for people of all ages and abilities to walk, cycle and horse ride for recreation, health and sustainable transport. Proposals for new access legislation to provide for recreation and passage will enable further development of access provision which integrates recreational and functional purposes.

3.19 Part 1 of the Land Reform (Scotland) Bill provides for rights of responsible access to land and inland water for recreation and passage. The Bill seeks to balance the desire of recreational users to enjoy the countryside with the needs of those who live and work in the countryside. Subject to its passage through Parliament the Bill places new powers and duties on local authorities to:

• plan for and establish a system of core paths in their area to serve needs, including those of walkers, for recreation and passage.
• ensure that the system of core paths is accessible, promoted and managed.
• establish at least one local access forum in each of their areas, with a balanced membership of both recreational and land management interests, to advise them in their use of powers relating to access rights.

3.20 The Bill was introduced to Parliament on 27 November 2001. It is anticipated that the Bill will receive Royal Assent in early 2003 and that the right of responsible access will become operational late 2003.

3.21 Local authorities will wish to consider the relationship between the local access forum and any local walking forum which may be established.

Road Traffic Reduction

3.22 A coherent strategy to encourage walking which includes local targets towards achieving it, will help local authorities to meet any targets they set under the Road Traffic Reduction Act and to carry out action plans following any declarations of a air quality management areas.

• The Road Traffic Reduction Act (1997) asks local authorities to produce road traffic reduction reports which set targets for a reduction in, or a slowing of the rate of growth of traffic on local roads in their area, or to provide reasons why doing so is inappropriate in their area.
• The Air Quality Strategy contains objectives for eight air pollutants of particular concern to human health and sets target dates for achieving them. Local authorities are required to review and assess air quality in their areas and, if any of the objectives are unlikely to be met by the prescribed dates, must declare an air quality management area (AQMA). The authority must also draw up an action plan outlining how it intends to move towards meeting the objectives. Ideally, the action plan should be developed in conjunction with the local transport plan. To date, three local authorities in Scotland have declared AQMAs - Aberdeen, Edinburgh and Glasgow - all based on traffic-related NO₂ emissions.

Social Inclusion

3.23 The Scottish Executive is committed to maximising individuals’ ability to participate in all aspects of society. The four strands of action, as set out in Scotland’s Social Inclusion Strategy are:

• To promote opportunities.
• To tackle barriers to inclusion.
• To promote inclusion among children.
• To build stronger communities.

Walking, as part of an integrated transport policy, has the potential to contribute to these objectives by making education, employment and other services including leisure more accessible to all.

Climate Change

3.24 Climate change is widely acknowledged as a serious environmental threat to our planet. Recent research suggests that in Scotland, as a result of climate change, there will be more severe weather events, storms, floods, gales, and rainfall may increase by up to 50% in the west by the end of the century. The Scottish Executive is committed to working in partnership with the UK Government to achieve the UK Kyoto target of a 12.5% reduction in greenhouse gas emissions by 2008-2012 and to move beyond this to the UK domestic goal of a 20% reduction in carbon dioxide emissions by 2010. Promotion of sustainable forms of transport, such as walking, is an important element of the Executive's climate change strategy.

Land Management Policies

3.25 In June 2001 the Scottish Executive published A Forward Strategy for Scottish Agriculture. The Strategy recognises that farmers and the land they work can be a huge asset to the rural economy in many different ways, not just to the production of food. The level of income generated from walking is considerable and much of this is derived from land managed and owned by farmers. It is vital to develop better links between these two important sectors so that farmers can earn income from this tourism and, in turn, can help to ensure that we provide the quality infrastructure and services required by visitors to Scotland.

Tourism

3.26 The Scottish Executive published A New Strategy for Scottish Tourism in February 2000 containing 21 action points set exclusively for the public sector. A review of this strategy document led to the publication in March 2002 of the Tourism Framework for Action 2002:2005 which takes forward the 2000 Strategy. These documents recognised the importance of marketing niche products, such as walking and eco-tourism.

3.27 VisitScotland are undertaking a national walking promotion called WalkingWild, which is being led by Highlands of Scotland Tourist on behalf of VisitScotland and the other Area Tourist Boards. With 41% of all adults regularly taking a stroll for pleasure, leisure walking is the most popular recreational activity in the UK today. VisitScotland estimates that the walking market generates over 1 million trips annually, with visitors staying for a total of over 9 million 'bednights' and spending over £400 million. It is also estimated that around 16 million leisure day trips are taken in Scotland involving some form of recreational walking. The majority of these (93%) involve a long walk or ramble, while the remaining 7% are accounted for by hill walking.

Mobility Needs

3.28 In recognition of the needs of those in society with mobility difficulties Scottish Ministers have established a Mobility and Accessibility Committee for Scotland (MACS). All local authorities should ensure that they are fully aware of the role of MACS. The work of the Committee will inform local authorities as they prepare their relevant strategies.

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