Implications

The evaluation was intended to supplement existing data sets, and it is important to consider the wider context of each finding.

Familiarity with the Highway Code:

Although 75% of respondents said they knew the Highway Code well, or fairly well, just 52% of those surveyed were aware of changes introduced to the Highway Code in 2022.

Although low, this does represent an increase from the YouGov polling by Cycling UK published in January 2023, which found as many as 64% of people in Scotland heard not much or nothing about the Highway Code Changes.

However, our RSF funded evaluation was not limited to changes made to the Highway Code, but also to longstanding guidance (such as the original wording of Rule 170 on giving way to pedestrians if they have started to cross the road), to support the safety of people walking, cycling and wheeling.

40% of drivers surveyed admitted they had not consulted the Highway Code since passing their driving test, with over 60% of respondents having passed their test more than 20 years ago.

This suggests the importance of wider communications to provide reminders and periodic updates. The most recent data from RITS (2021) found that 28% of drivers were aware of communications relating to driving and road safety.

While LGV / PCV drivers are required to complete 35 hours of periodic training every five years, no such requirement exists for drivers of vehicles under 3.5t.

Awareness of regulations and guidance to protect vulnerable road users

Of those drivers surveyed, 54% were able to correctly identify the hierarchy of road users, although almost 1 in 5 drivers incorrectly identified some motor vehicles as more vulnerable.

Data from Cycling Scotland’s Give Cycle Space 2023 evaluation found that only 70% of drivers agreed that they ‘believe that people cycling have equal rights on the roads as drivers’, further highlighting ambiguity around the rights and responsibilities of road users.

Rule H1 was introduced as part of changes to the Highway Code in 2022. However, evaluation shows that drivers were also less clear on other guidance that pre-dates the revision.

On average, drivers got 12 of 19 questions about the Highway Code correct – an average score of 63%. The current pass rate for the driving theory test is 86%. In making this comparison, it is important to note that the Progressive survey had a significant focus on guidance for protecting vulnerable road users, rather than a broader overview as would appear in a theory test.

Of significant concern is interaction with pedestrians at side roads. While 78% of respondents answered correctly that “at a junction, drivers should give way to pedestrians whether they are crossing or waiting to cross the road”, a sizeable minority got this response wrong, and evidence from the Street Systems junctions analysis demonstrates that priority is given to pedestrians in less than half of interactions at side roads.

In the RAC’s 2023 Report on Motoring, data indicates that 71% of drivers say “they now give way to pedestrians who are waiting to cross at a junction. However, only 24% say that, when they are pedestrians, they find other drivers willing to let them cross in such situations. This difference between stated and perceived behaviours, is consistent with the findings of this study.

There was also limited understanding of guidance to support people cycling, with only 21% recognising the legal right to filter in slow moving traffic (Highway Code rule 88 and rule 160), and just 58% identifying the right to ride in the primary position (centre of the lane) as promoted in the UK National Standard for Cycle Training. This is consistent with data captured as part of the Give Cycle Space evaluation, which found that 51% of drivers could correctly identify the road position of people cycling from the edge of the road.

As part of the RITS survey, 85% of drivers agreed that they “believe people on pedal electric bikes fail to obey the rules of the road”. Data from the Highway Code Awareness survey suggests that lack of knowledge may contribute to this belief.

Research into contributory factors show that “73% of the top 5 CFs are assigned to the driver of the vehicle in collision with the person cycling” and “the person driving failed to look properly more than twice as many times as the person riding the bike”. There is insufficient information to determine whether lack of awareness of guidance relating to road positioning or filtering has an influence on this. However, this data supports the need to highlight the responsibilities placed on drivers to watch out for VRUs and reduce the risks they pose to them.

Disparities in knowledge of drivers based on age

The In-Depth Road Traffic Fatalities Report findings show that “a large number of young drivers (390 drivers aged between 16 and 35) were found to be at fault for the fatal collisions” and that “when younger drivers are involved in fatal collisions, they are more likely to have been at fault.”

The responses to the Highway Code survey identified that older drivers generally achieved a higher score that younger drivers (13.39 vs 11.13 respectively), despite many older drivers not having consulted the Highway Code in over 20 years.

It could be suggested that older drivers may score higher as they can draw on their driving experience. The scores achieved across all ages reinforces the need for ongoing Highway Code-related education and appropriate enforcement.

Through the Bikeability Scotland cycle training programme, Cycling Scotland supports over 60,000 pupils a year to develop skills to make everyday trips by bike. This is the first significant practical learning opportunity to establish and embed the hierarchy of road users, with clear guidance on pupil’s responsibilities to people walking and wheeling. Analysis of road user interactions at side roads highlights low application of Highway Code rule 170 / H2, and suggests the need to embed the new hierarchy of road users from a young age.

Vulnerable Road User training for drivers is another opportunity to consolidate this. Evaluation of the Practical Cycle Awareness Training as part of formal driver CPC found a 25% increase in the number of LGV/PCV drivers who recognised the benefit of vulnerable road user awareness training, highlighting the benefits of education on awareness.

Over 3,000 secondary school pupils participated in Cycle Awareness Training for Learner Drivers during 2023. Evaluation previously found that this training had a statistically significant and sustained impact on hazard awareness. A limited number of advanced driving instructors participated in this survey, with a shift in attitudes consistent with that of young drivers. The Bikeability Trust, operating in England with funding from the DfT, has been involved in the development of a ‘Cycle Savvy’ driver learning module, aimed at supporting driving instructors. Closer collaboration with industry may help reinforce learning for younger and less experienced drivers.

A minority of drivers do not agree with the importance of prioritising the safety of vulnerable road users. 92% of respondents agreed that “when driving, it’s important to always prioritise the safety of people walking”, and 91% agreed for people cycling. Although a minority, as a representative sample, data suggests that as many as 300,000 drivers across Scotland (9% of the driving population) are either unsure or disagree with the importance of prioritising the safety of vulnerable road users.

This reflects findings from the RITS survey tracking, showing that 10-15% of drivers disagree that “people cycling have the same rights as people driving”, and information collected as part of Give Cycle Space evaluation, with 93% of drivers agreeing “we should protect the most vulnerable road users, such as pedestrians and people cycling”.

These statements generally refer to beliefs and attitudes, rather than awareness of the Highway Code. This highlights the importance of not only communicating the guidance and regulations, but also the rationale behind reinforcing the Hierarchy of Road Users, as reflected in road safety casualty statistics.

The UK Parliament Public Accounts Committee report on Active Travel in England stated that “communications to the public have not been enough to help tackle perceptions that active travel is unsafe or to encourage more people to take part. People’s perception of the safety of active travel is as important as actual physical safety. There is significant public concern around safety and this remains a substantial barrier to getting more people cycling and walking. We are not convinced that DfT’s messaging around the positive changes that have been made to improve safety, such as revisions to the Highway Code, or the benefits of active travel have been communicated effectively to the general public.”

Scottish Road Safety Data (Stats 19) from MAST, covering the five-year period 2018-2022, identifies the following casualties:

• People cycling: 2,850 casualties, 1,972 (69%) occurred at or near a junction, 1,644 (83%) of these were uncontrolled junctions.
• People walking: 4,970 casualties, 2,402 (48%) at or near a junction, 1,827 (76%) of these were uncontrolled junctions.
• Combined: 7,820 pedal cycle and pedestrian casualties, 4,374 (56%) occurred at or near a junction, 3,471 (79%) of these were uncontrolled junctions

Note: slight and seriously injured cycling casualties are understood to be substantially underestimated, by at least a half.

A sizeable number of casualties occur at or near junctions, with the majority of these being uncontrolled. The Highway Code changes are designed to influence safer behaviours at locations of higher risk like junctions.