Designated Vehicle Lanes
1. The Minister for Transport asked the Motorists' Forum to consider the policy issues raised by the introduction of more designated lanes. That task was delegated to its Rights and Responsibilities Working Group, chaired by Sir Christopher Foster. The group - consisting of members from the Association of British Insurers, the AA, the Environmental Transport Association, Gwent Consultancy, the Institute of Advanced Motorists, the Metropolitan Police, the National Society for Clean Air, PACTS and the RAC Foundation - discussed these issues on June 20th. Members of the Department attended in an advisory capacity. Its report was presented to the Motorists' Forum on July 5th. Points made then have been reflected in this re-drafted report; but particularly those made by the AA, CPRE and RAC Motoring Services.
2. The Minister had asked that comment should concentrate on the general policy rather than specific schemes. The Department began the meeting of the 20th June with a presentation that discussed the objectives of such a scheme, past experience of them and the issues raised for the future.
3. Objectives. The group was told by the Department that most such schemes had and would continue to be introduced as part of a wider package of measures. Their primary objective was to increase the flow of traffic and reduce congestion.
4. In response the group said:
a. it is generally important to look at the predicted effects of a scheme in detail and also in the context of the network of which it is part;
b. as well as predicting and evaluating the effects on the journey times and costs of those using the proposed designated lanes, the effect on those using other lanes must be predicted, evaluated and brought into the overall reckoning as must traffic elsewhere in the network insofar as it would be materially affected. This widening of the focus could lead to expanded and stringent data requirements;
c. it was also important to consider how such a scheme affected flows on the network should there be a breakdown or other similar emergency. Subsequent to the meeting it was pointed out that the impact of a designated scheme on the emergency services - including breakdown services - should be assessed;
d. it was pointed out that previous consultation on such schemes had often concentrated on the engineering issues. Consultation on these issues must be widened to include users, particularly motorists, but also the interests of cyclists and pedestrians - those interests being covered in the presentation of the scheme. If the public were expected to co-operate and even welcome such schemes, they had to be persuaded these schemes were in their interest;
e. as a corollary it was important to identify the effect on various categories e.g., motorists, bus passengers, HGVs, pedestrians, cyclists etc. It was agreed that the aim of the scheme as far as possible had to be improved traffic flow for all lanes and all kinds of road-users - including disabled people. Insofar as this was not possible more than commensurate benefits should be predicted elsewhere to offset any losers;
f. as well as studies before, there should also be after studies to see how well expectations have been realised. They should be published and there should be no hesitation in adjusting and, if necessary, abandoning schemes which did not live up to expectations.
5. The Environment and Safety. The group was told that these matters were also objectives of such schemes. The group was concerned that the impacts of schemes on them should be predicted and evaluated, and should be part of the consultation process. It was agreed that among the objectives of a scheme should be those to improve safety and the environment. If there were to be deterioration in these respects, it should be slight and there should be more than commensurate benefits of some other kind.
6. A question was raised over the comparative value of urban, rural and inter urban schemes. Whilst the group was convinced the impact was more likely to be positive in urban areas, it was noted that as yet, there was insufficient monitoring data readily available to justify their implementation in other parts of the country. Any endorsement of the principle of designated lanes outside urban areas should not, therefore, be seen as carte blanche to initiate such projects across the country until their worth has been established in rural areas and on inter urban schemes.
7. In conclusion the group did not in principle oppose the introduction of designated lanes. But each proposal should be considered carefully on its merits; if it was to proceed, implementation should be planned carefully on the lines described above.
8. We were then asked some specific questions.
(a) Does there need to be consistency?
The group felt that there was a need for standards to be set to ensure that all schemes were conceived, evaluated and implemented effectively and so far as possible, on a comparative basis. DETR should establish broad criteria, including environmental and safety related standards.
(b) What factors would help make them acceptable to motorists?
(i) In introducing any designated scheme, members stressed that more consideration should be given to its safety and environmental impact - a scheme's feasibility should not be looked at purely from a traffic flow and engineering standpoint.
(ii) In addition, wide consultation and information were seen as the two key elements to the acceptability of such schemes. Motorists and others need to be told in advance what the benefits for them and for society are expected to be. Members drew attention to the need for consultation to be wide ranging and open. The specific examples of the Blackwall Tunnel (where the Highways Agency had consulted fully on the problems etc) and the M4 bus/taxi lane (where it was claimed insufficient consultation had taken place before its introduction) were raised.
(iii) Members also considered information had a key part to play in the acceptance of designated lanes. It was suggested that any information part of a package should be given prior to the introduction of any designated lanes schemes - it was too late to try to stress the message when the scheme was operating.
(iv) Subsequently it was suggested better signage was often needed. Many motorists were concerned for example over when they were or were not banned from a lane.
(c) What were cost effective levels of compliance?
(i) The level of compliance was also an area of concern. The violation levels in pilot schemes depended on the presence or lack of police officers. Most members considered that a 2-3% violation rate was acceptable. The group felt that more information on the success and policing of European and other international schemes would be useful as some of the enforcement measures employed might be transferable.
(ii) It was agreed that manned policing was not the best use of resources and that technology would have to bear most of the burden. This raised the issue of communication with the offender. The group felt that if new technology, particularly cameras, was to be introduced, there was a need for better communication to drivers explaining why enforcement was necessary. Simply punishing the offender without some form of education about the crime and the possible consequences would not be effective.
(iii) It was agreed schemes had to remain straightforward for effective enforcement. Simplicity would create less confusion amongst drivers and also allow for easier detection. The hardest schemes to control would be those where similar vehicle types had different degrees of access eg. according to the number of passengers. Proper signing would help enforcement.
(d) How essential is Monitoring?
The group considered it paramount there should be effective monitoring of schemes, both pre- and post-introduction. Where schemes were not meeting the standards and goals laid out for them, they should be withdrawn or at least reconsidered and revised. This flexible approach will ensure that only the best schemes continue to be used which should, in turn, improve public confidence in this paper.
