Executive summary

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, given the relevance to ongoing work across the UK to improve transport accessibility for all user groups.

Phase 2 research follows Phase 1, undertaken during 2020/21. 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, 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 findings from Phase 1 literature review and online survey 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 sought to explore these issues in more detail. Phase 2 research was undertaken in two

stages; through a series of online focus groups (Stage 1), and a site survey in a real-world environment (Stage

2).

Research aims and objectives

Research to date has considered the use of Zebra crossings by all users, and in particular, the needs of most at risk road users.

Overarching research aims

The overarching aim of the research is to meet the requirements of the Equality Act 2010, Public Sector Equity Duty (PSED), to explore if and how reasonable adjustments could be made to Zebra crossings to ensure they meet the needs of individuals with protected characteristics. In doing so, it is hoped that the research can realise the following additional aims:

  • Identify areas for improvement in perceived safety for people with a disability;
  • Influence current and future practice in the deployment of Zebra crossings across on all road types; and
  • Promote good practice in the deployment of Zebra crossings.

As the research is ongoing, and there is potential for future phases of research, these aims remain valid.

Phase 2 aims and objectives

The aims of Phase 2 were to:

  • Close the knowledge gap from Phase 1 on the needs of users most at risk (specifically disabled users), and their attitude to and experiences at Zebra crossings; and
  • Identify those at-risk groups for whom Zebra crossings are beneficial, and for which at risk groups they are not suitable, to understand what, on balance, is reasonable for all.

To achieve the above, the following objectives were defined;

  • Validate the findings of the Phase 1 online questionnaire and literature review, or otherwise;
  • Seek the views and experiences of disabled people with whom the online survey may not have engaged; and
  • Identify potential improvements to the design of Zebra crossings or their surroundings for further investigation, primarily regarding increasing perceptions of safety for most at risk users.

Summary of research findings

Participants’ views and experiences

Participants were asked how often they use Zebra crossings, and about the environment surrounding these crossings. If participants stated they do not use Zebra crossings, they were asked why. Participants were then asked about issues they have witnessed or experienced; feelings and behaviours whilst approaching and using Zebra crossings; and if they think there are positive aspects of these types of crossings.

Summary of participants’ views and experiences of Zebra crossings

Frequency and use
  • Ranged from daily to never
  • Use depends on whether a crossing is located near to where they live/travel plus the factors outlined below
Overall experiences
  • Most feel cautious on the approach to Zebra crossings and said it is hard to know when to cross
  • Blind people feel especially vulnerable
  • No auditory confirmation that it is safe, and wind or noise from roadworks can make crossing especially difficult
  • Feel the need to move quickly across
Impact of location, surroundings, and infrastructure
  • Feel more unsafe when Zebra crossings are located near corners, roundabouts or where there are high traffic volumes
  • Bus stops and trees can restrict visibility
  • Black and white stripes in the crossing areas are better than coloured
  • Height of Belisha beacons too high for some
Impacts of other road users
  • Hard to hear cycles, electric cars etc. approaching
  • Perception that cyclists are less likely to stop
  • Perceived lack of understanding by road users of the Highway Code
  • Less pedestrian traffic compared with controlled crossings
  • Perception that the UK has less of a pedestrian friendly culture compared to other countries

Suggested improvements

Table 2 summarises participants’ suggested improvements, accumulated from focus group findings and the site survey. Across all focus groups, maintenance and more effective lighting were the most frequently suggested improvements, followed by road safety education and a clearer indication to the driver that a Zebra crossing is ahead. 

Participants’ suggested improvements

Location and maintenance
  • Assessment of location of Zebra crossing and surroundings before, during, and after Zebra crossing construction
  • Ongoing maintenance of road markings and lighting
Technical changes – lighting, signals and signage
  • Improved lighting at and near crossings
  • Visual and audible signals (e.g. flashing lights, rumble strips) for road users
  • Improved signage for road users
  • Lowering of height of Belisha beacon
Technical changes – Zebra crossing surface/construction
  • Raised tables
  • Narrow carriageway/footway buildouts
  • Attention to dropped kerb requirements
  • Attention to kerb upstand heights
  • Tactile paving to be extended all the way to the building line
  • CCTV cameras
Education and training
  • Adverts and road safety education campaigns
  • Raise awareness of Highway Code
  • Ongoing road user training
  • Disability awareness training
Legislation/enforcement
  • Parking enforcement
  • Speed limit reduction
  • Highway Code enforcement

Conclusions

Phase 2 of the research study, undertaken in 2021, sought to build upon the findings of Phase 1, undertaken in 2020; this found that whilst attitudes of users and practitioners towards Zebra crossings were largely favourable, it was recognised that people with disabilities are more likely to feel uncomfortable using Zebra crossings due to a range of issues.

A wide range of potential improvements, including physical design adaptations as well as stricter compliance measures and increased training were suggested during Phase 1 to improve the safety of Zebra crossings, to make them more appropriate to the needs of all users.

The views and experiences of most at risk road users captured during Phase 2 have validated these findings and have deepened understanding of the issues faced by older people and people with disabilities, and of potential improvements that could be considered.

Of the participants who took part in the study, most feel cautious on approach to Zebra crossings and said it is hard to know when to cross. Participants who are blind/visually impaired feel especially vulnerable. Participants feel more unsafe when using Zebra crossings that are located near corners or roundabouts, or where there are high traffic volumes or wider roads. All user groups considered that there is a lack of understanding by road users of the Highway Code, perceiving the UK to have less of a pedestrian friendly culture compared to other countries.

The site survey demonstrated the variance of user experiences depending on participants’ own abilities. The area surrounding a Zebra crossing, the location of the crossing, as well as the design of the Zebra crossing itself all contributed to participants’ perceptions and experiences. The raised table with flush kerbs was found to be accessible and comfortable for those with mobility issues, however this posed issues for blind participants who found it challenging to safely locate the crossing.

Participants provided a range of suggested improvements to improve experiences of using Zebra crossings. These suggestions were grouped into:

  • Location and maintenance;
  • Technical changes;
  • Education and training; and
  • Legislation/enforcement.

It is worth highlighting that, whilst participants would prefer to use a signal-controlled crossing over a Zebra crossing, almost all considered that there is a role for Zebra crossings, and they are better than an uncontrolled crossing.

Recommended next steps

The findings of Phase 2 have supplemented and supported Phase 1, with a broad range of potential improvements suggested. It is Jacobs’ recommendation that further work is undertaken to explore in more detail the feasibility of potential improvements, moving nearer towards the overarching research aims described in Section 2. 

The next steps to achieving this could include:

  1. Engagement with Zebra crossing trials/ innovations delivery teams across the UK, to obtain an understanding of lessons learned, successes and failures. This would be limited to trials/ innovations which have been conducted within the last five years (2017-2022) and trials/ innovations which align with suggested accessibility improvements identified during previous phases;
  2. Focus groups and interviews with Roads Authorities and industry representatives to explore the feasibility and deliverability of suggested improvements identified in previous research phases; 
  3. A trial of one or more suggested infrastructure improvements as identified during Phase 2. This would be informed by findings from discussions with Roads Authorities and industry experts. Investigations could include the identification of a Local Authority willing to trial intervention(s) on their road network; and
  4. Trial of a local education/awareness-raising campaign targeting driver/rider behaviour in relation to Zebra crossings. The trial could consist of pre-intervention market research with road users to inform messaging, engagement with a specific local community, including young people and people with cognitive impairments (groups underrepresented in previous phases of research), a trial behaviour change campaign (delivered in partnership with the Local Authority), pre- and post- evaluation with road users and members of the community, including road users at greater risk.