Introduction

In 2021, Jacobs, with partners The Scottish Collaboration for Public Health Research and Policy (SCPHRP), University of Edinburgh (UoE), was appointed by Transport Scotland to undertake a second phase of research into Zebra crossings. This phase of research (Phase 2) has had a particular focus on the needs of people with disabilities and their attitudes to, and experience of, Zebra crossings.

The study has been funded by Transport Scotland through the Scottish Roads Research Board (SRRB) programme. The Department for Transport (DfT) has also provided input into the study, given the relevance to ongoing work across the UK to improve transport accessibility for all user groups.

Context

Zebra crossings are a form of crossing facility which can be installed instead of an uncontrolled or informal crossing, or signal-controlled crossing.

Each type of crossing facility has advantages and disadvantages and decisions on what type of crossing is most appropriate should be made according to the circumstances of the site and road users’ needs. The Traffic Signs Manual (TSM) 2016, Chapter 6 advises that a site assessment should be conducted to make an informed decision about whether a crossing is needed, and if so, what type of crossing it should be.

Zebra crossings are often perceived to not provide any additional benefit to some disabled user groups. There are no indicators to blind and partially sighted people that any approaching vehicle or cycle has stopped. Also, blind and partially sighted people may be reliant on sound when deciding if it is safe to cross. With the continuing growth in cycling, and increasing use of hybrid and electric vehicles, this reliance on sound is becoming more problematic.

Other people with disabilities encounter difficulties using Zebra crossings, including but not limited to wheelchair users (given the different eye height), and people with learning disabilities. Therefore, a Zebra crossing may offer no improvement over an uncontrolled crossing for some individuals. They will, however, still provide advantages to other groups of users considered to be most at risk, such as older people.

Under the Equality Act 2010, the Public Sector Equality Duty (PSED) requires public bodies to have due regard to the need to eliminate discrimination, advance equality of opportunity and foster good relations between different people when carrying out their activities. This includes the duty to make reasonable adjustments if disabled people are put at a disadvantage.

This research has focussed on standard Zebra crossings within a street environment. TSM 2016 includes additional forms of crossing which use the Zebra crossing layout for pedestrians, namely parallel crossings (this consists of black and white stripes for pedestrians, as at a Zebra crossing, with a parallel route for cyclists) and ‘mini’ Zebras (a Zebra crossing for pedestrians across a cycleway, in which the Belisha beacons may be omitted). Although these different crossing types were not considered specifically within the research, recommendations for improvements may be relevant to features common to all types of Zebra crossings.

Other ongoing Zebra crossing research studies have been noted, including Greater Manchester Combined Authority’s trial of side road Zebra crossings and Portsmouth City Council’s trial of a light-up Zebra crossing, triggered by pedestrian movement.

Research has taken cognisance of the Highway Code 2022 update to Rule 19, clarifying that drivers and riders should give way to pedestrians waiting to cross a Zebra crossing, and must give way to pedestrians on a Zebra crossing.

It is expected that this research could inform guidance and action plans including:

  • Cycling by Design; and
  • Roads for All: Good Practice Guide for Roads.

In addition to informing guidance that is relevant in a Scottish context, there may be opportunities for this research to inform broader guidance, for example, future updates to the DfT’s Inclusive Mobility guidance (published in 2021), and other relevant guidance in other parts of the UK.

Research undertaken to date

This Phase 2 research follows Phase 1, undertaken during 2020/21, which focussed primarily on information gathering through three work stages:

  1. A literature review of best practice being adopted in Scotland, the UK and other countries, with respect to Zebra crossings;
  2. A publicly available online questionnaire investigating attitudes towards Zebra crossings amongst members of the public; and
  3. A questionnaire issued to officers of Roads Authorities investigating their policies on the retention of Zebra crossings, their views on the appropriateness of Zebra crossings and any potential improvements they consider may improve their safety.

Details of Phase 1 are reported in a separate report titled ‘Fully Accessible Zebra Crossings, SRRB Research Framework, Jacobs, Oct 2021’.

This second phase, undertaken during 2021/22, has built upon the findings from Phase 1, engaging directly with individuals aged over 65 and individuals with disabilities, whose views were under-represented in the Phase 1 online questionnaire. The number of responses amongst certain groups was relatively low, particularly amongst deaf people or people with hearing loss. Feedback on the questionnaire highlighted that it was biased against people who use British Sign Language (BSL) as their first language, which would result in some people finding it difficult to engage with the questionnaire. Furthermore, there are inherent issues with using an online questionnaire as they rely primarily on online access and a certain level of technology awareness and ability, which would influence some individuals’ ability to participate.

The findings from the literature review and online survey in Phase 1 highlighted key issues experienced by disabled people when using crossings, including:

  • Vehicles failing to stop to let the individual cross;
  • Difficult for users to judge if and when a vehicle is going to stop;
  • Difficult for road users to see pedestrians waiting to cross;
  • Unobservant or impatient motorists;
  • Location of crossing makes it difficult for pedestrians/road users to see each other; and
  • Lack of maintenance of signage, road markings and lighting indicating a Zebra crossing.

Phase 2 of the research has sought to explore these issues in more detail. It has been undertaken in two key stages; through a series of online focus groups (Stage 1), and a site survey in a real-world environment (Stage 2).

Structure of report

This report details the research activities and findings from Phase 2, with Jacobs’ and the UoE’s recommendations for future work in this area. Following this introduction, this report is structured as follows:

  • Research aims and objectives;
  • Research Methodology;
  • Findings from Stage 1 focus groups;
  • Findings from Stage 2 site survey;
  • Conclusions and recommendations for future work; and
  • Appendices containing materials used in the promotion and delivery of the research.