The Mayor's draft transport strategy and draft interim road safety plan

Report: 5
Date: 22 March 2001
By: Clerk and Commissioner

Summary

This report proposes a joint response from the MPA and the Metropolitan Police Service (MPS) to the Mayor's draft Transport Strategy. A response has to be made by 30 March. The Mayor has also published a Draft Interim Road Safety Plan and the committee is invited to endorse the MPS' response to this.

A. Recommendation

That the responses contained in Appendix 1 (draft transport strategy) and Appendix 3 (draft interim road safety plan) be approved, subject to any amendments agreed by the Committee.

B. Supporting information

Draft transport strategy

1. The Mayor of London has declared that his top priority is tackling the transport crisis facing London. In furtherance of this, he published a draft Transport Strategy in January 2001, which sets out an integrated package of policies and proposals for London's transport systems over the next decade. This draft strategy is out for consultation with the public and key partners until 30 March. The Mayor expects to finalise and publish his strategy in the summer.

2. In November 2000, the full Authority and the Co-ordination & Urgency Committee received reports on the content of the Mayor's draft strategy and initial thoughts on the MPA/MPS' possible response. Since then, officers of the MPA and the MPS have met with their counterparts in the GLA's Transport Strategy Team and at Transport for London to discuss in more detail what the implications are for the MPS and how it can contribute to the success of the strategy.

3. Appendix 1 is a proposed response. The Committee is invited to approve this (with any amendments) as a joint response from the MPA and the MPS. Once the Mayor has finalised his strategy there will need to be ongoing discussions on its detailed implementation and further reports to committee where this impacts on the Authority's policing priorities.

Draft interim road safety plan

4. In January, the Mayor also published a draft interim road safety plan. As its title suggests, this is an interim measure pending Transport for London's development of London's first road safety plan. It represents a framework for developing detailed implementation plans and proposals. The Mayor intends to issue the interim road safety plan towards the end of March (following initial consultation on the draft), at the same time as guidance is provided to the boroughs on their draft local spending plans.

5. The key themes in the draft plan, aimed at reducing casualties, include:

• safety through partnership working;
• managing speeds and reducing high and inappropriate speeds;
• protecting vulnerable road users, particularly children, pedestrians, cyclists and powered two wheelers.

A copy of the plan is available in the Members' Room. Attached, as Appendix 2, is that part of the draft plan that sets out specific proposals.

6. The MPS has produced a response to the draft plan, which is at Appendix 3. The Committee is invited to endorse this. As with the transport strategy, further reports will be necessary as more detailed proposals are developed.

C. Financial implications

The financial implications will need to be addressed as detailed proposals are developed.

D. Background papers

• Report to the Metropolitan Police Authority -  Mayor's draft transport strategy -  9 November 2000
• Report to the Co-ordination & Urgency Committee - Draft initial response to Mayor's draft transport strategy - 23 November 2000
• MPS draft response

E. Contact details

The authors of this report is Susan Merchant, MPS and Simon Vile, Head of Secretariat, MPA.

For information contact:

MPA general: 020 7202 0202
Media enquiries: 020 7202 0217/18

Appendix 1: Proposed response to the mayor's draft transport strategy

General comments

1. The MPA and the MPS welcome the Mayor's strategy and believes that it provides the framework for making real improvements in a holistic way to London's transport system and addressing the many problems and pressures the various elements of the system face. The MPA believes that the Mayor is right to give such a high priority to this because of its major contribution to the quality of life of those who live or work in London.

2. The MPA and the MPS are committed to working with the Mayor and the other key players to ensure the success of his strategy. It is in everyone's interest that all parts of our transport system work effectively and that passengers can travel safely across London. The MPS will assist in addressing 'door to door' issues including personal safety and security by contributing its unique range of powers, skills and expertise.

3. The MPS is also a major London employer. As such it and its staff – many of whom work shifts and unsociable hours – are dependent on a safe, efficient and cost effective transport system.

4. Equally, the MPS relies on the London road network in delivering its emergency services (2.5 million 999 calls a year), response services and general patrolling functions (65 million miles covered a year). It is important that due account is taken of the MPS's needs when, for instance, traffic calming measures are proposed, as such measures can seriously impact on the time taken to respond to emergencies.

5. It is recognised that the strategy sets out policies and proposals at a high level and in this regard the MPA and MPS fully support it. Clearly, when moving towards actual implementation there will be a need for constructive discussions between the MPS, the GLA and Transport for London on the detail and implications for the police service and the priorities set for it by the MPA. For instance, the MPS will need to consider carefully what its role should be (if any) if enforcement was increased through decriminalisation of offences. In particular, a decriminalisation of the red routes would entail discussions about the future role of the Traffic Warden Service.

6. There are a number of implications for police resources in the strategy, some of which are discussed further in this document. In addition, the development of additional river use has implications for the Marine Support Unit. The planned improvement of the transport infrastructure has potential implications for boroughs arising from increased criminal mobility and demands for police services at off-peak times. The MPS would welcome more detailed discussions on these issues as planning develops.

7. The MPS has concerns over the impact of congestion charging on its staff, particularly for both police and civil staff directly involved in the provision of a 24-hour policing service. Shift workers are required to work unsociable and unpredictable hours and can experience significant difficulties travelling to and from work during early and late hours. Female staff travelling alone particularly, feel vulnerable during the late hours. As a consequence many find it necessary to travel to work by car. The MPS would be very concerned if this led to increased costs for its staff, or personal safety concerns, which would be likely to exacerbate the present recruitment and retention crisis.

8. Congestion charging could also have cost implications for the MPS if additional allowances have to be paid, for example, to civil staff such as fingerprint officers who use private vehicles on duty.

9. There are links between the transport strategy and the Mayor's other draft strategies and plans, for instance on air quality and road safety. These all have implications for the MPS, to a greater or lesser extent, and the MPA and MPS will want to take an overview of these in the context of priorities and available resources.

10. At this stage, therefore, the MPA and the MPS fully supports the draft strategy whilst reserving the right to comment in more detail as proposals are developed.

Comments on specific proposals in the strategy

The following table identifies those proposals in the Draft Transport Strategy on which the MPS wish to comment.

Appendix 2

Available from the MPA, in hard copy only

Appendix 3: Metropolitan Police Service response to Mayor's draft interim road safety plan

Summary

• The MPS vision: 'To make London the safest major city in the world', fully supports the overall intentions of this plan, and the MPS is enthusiastic to work in partnership with others in a targeted manner to reduce death, injury and fear on London roads.
• As a major employer in London the MPS has a vested interest in reduced risks on the roads.
• We recognise the importance of a partnership approach to problem solving and the unique contribution that the MPS can make through the use of a range of policing powers and skills. Local crime and disorder strategies together with local (transport) implementation plans provide a framework to identify and address a broad range of road safety issues.
• Identifying the key themes of working in partnership, managing speeds and focusing efforts on protecting vulnerable roads users [children, pedestrians, cyclists and powered two wheelers is supported. It is suggested that intelligence [information] and occupational road risk are also included as key themes.
• Resources aligned to road policing have been maintained but not been increased following discussions with the Metropolitan Police Authority on next year's MPS policing priorities.
• It is essential therefore that police enforcement of traffic law should be guided by the principles of proportionality in applying the law and securing compliance; targeting of enforcement action; consistency of approach; and transparency about what enforcement action is undertaken, and why; and recognition that effective partnerships with other organisations are essential.
• The plan is not consistent in its approach to borough involvement and at times appears to be a TLRN road safety plan rather than pan London document.
• There are significant overlaps between crime and traffic offending.

MPS role in road safety

The rationale for the involvement of police in road safety is provided by:

• overarching Aims & Objectives for the Police service - 'Contributing to improving road safety and reducing road casualties'
• Crime & Disorder Act emphasises need for local action to address both public safety and crime reduction
• National Road Safety Strategy: 'Tomorrow's Roads. Safer for Everyone'
• ACPO National Road Policing Strategy
• HMIC Thematic Inspection into Road Policing and Traffic
• MPS vision; 'To make London the safest major city in the world'
• MPS policing plan 2001/02
• Link between 'traffic' and crime offending
• 'Saving Lives': Our Healthier Nation

MPS comments on the scope of the draft interim road plan

• London needs a pan London road safety plan to provide a strategic framework for dealing 'with all road accidents in London'.
• The plan whilst providing detail in the finance section on the work to be undertaken on the TLRN [Transport for London Road Network] does not however cover in a similar fashion the boroughs where 80 per cent of the casualties occur. The plan should cover all highway authorities in the same fashion.
• MPS road policing service provision to the various highway authorities should be based upon principles of enforcement.
• Effective intelligence and information systems should be included as an additional key theme and as such would:

• link in with MPS intelligence-led approach to problem oriented policing
• contribute to Transport for London's commitment to having excellence in understanding of transport issues

Targets for reducing casualties

• The casualty reduction targets are challenging particularly when account is taken of the projected increase in vulnerable modes of transport such walking, cycling and use of powered two wheelers.
• The MPS supports the national targets and the proposal to include sub targets, on a pan London wide basis, for pedestrians, cyclists and powered two wheelers. As these modes are expected to increase casualty rates should be monitored to more accurately assess progress.
• Furthermore increased walking and cycling will provide health benefits, and probably economic ones, and these should be factored in so that overall benefits to London and Londoners are assessed.

Effective partnerships

• Identification of partnership as a key theme is fully supported.
• Effective partnerships provide the opportunity to enhance understanding of complex problems; identify remedial measures; and then agree and implement solutions.
• Since solutions invariably require a mixture of engineering, education and enforcement no one organisation can work effectively in isolation.
• The Road Safety Plan does not include adequate proposals, at this stage, to indicate how London will work in partnership at a pan London level. Nor does the plan indicate how such a mechanism will engage with a long list of organisations with an interest in road safety; or work with and complement the existing arrangements at borough or sub-regional level.
• Development of borough Road Safety Plans should include consultation with police.

Intelligence & information

• Without effective understanding of what the problems are and how, where, when, with whom to intervene or to assess what worked and what didn't and why; the Road Safety system will be ineffective.
• Police enforcement action, crime or 'traffic', is intelligence-led within a problem orientated policing approach. If the MPS are to be effective in supporting the work of others, particularly at a time of personnel shortages, it is essential that that the right information is readily available.
• Having excellence in understanding of transport issues [TfL board key objective] should encompass road safety issues.
• Police collect and retain far more information, and understanding, than that provided to boroughs via the stats19 protocol. There is scope subject to appropriate resources being made available [i.e. within Criminal Justice Units] to make this more accessible to others subject to appropriate arrangements being in place.
• London is fortunate to have a rich source of transport, and road safety, academia at its disposal. This provides a further opportunity for partnership working.
• Intelligence and information should be included with the Interim Road Safety Plan as a key theme.

Management of speed

• Identification of management of speed as a key theme is fully supported.
• Adopting this issue on a pan London basis will provided a united front and support the work within boroughs.
• The MPS plans to increase enforcement through use of hypothecation arrangements.
• Proposals to undertake a comprehensive media campaign, backed by enforcement, are supported.
• MPS acknowledges the potential benefits of introducing 20mph zones but highlights the need for these to be primarily self-enforcing, through appropriate education and engineering.

Publicity & media campaign

• It will be essential to win 'hearts and minds' and change public opinion otherwise efforts to improve safety will be wasted.
• It will be important to raise awareness of links between different Government and Mayoral strategies including overlap between crime and traffic issues.
• It is recommended that London endorse the DETR 'THINK' campaign and utilise the concepts to promote more collaborative attitudes and actions across ALL road users.

Vulnerable road users

• Pedestrians, cyclists and users of powered two wheelers are already acknowledged to be vulnerable groups. The draft transport strategy will lead to greater use of these modes and therefore identification of these vulnerable road users as a key theme is fully supported.
• MPS will work with partners in an intelligence-led approach to reducing vulnerable road user risks and casualties.

Pedestrians

• The proposed engineering measures are supported.
• Additional work needs to be undertaken to raise skill levels of all road users.
• 'Jaywalking' [injudicious crossing] requires attention and if appropriately highlighted as an issue would demonstrate equality of treatment across all road users - [part of the rationale behind THINK campaign]

Cycling

• The MPS supports proposals to provide additional cycle priority measures and additional training.
• Increased cycling is likely to raise awareness of cyclists that in turn will contribute to reduced risks.

Motorcycle

• Recognition that we do not have a good understanding of the issues is appropriate.
• Educate resafer riding and use of safety equipment.
• Improved road maintenance to assist rider safety.

Safer routes to school

• Development of a pan London approach is fully supported.
• This initiative provides an opportunity, for a number of organisations, to work together to address the two key parental issues of personal security and road safety.
• Implementation will not only contribute to the transport strategy but also develop skills in children and raise understanding amongst drivers of the needs of the most vulnerable in our society.

Principles of enforcement

• The number of traffic offences greatly exceeds the capacity of police to deal with them. There is a need for police to maximise use of limited police resources within the context of a range of competing demands not just with road policing terms but also within policing in general.
• Consequently the enforcement of traffic law by the police should be guided by principles of proportionality in applying the law and securing compliance; targeting of enforcement action; consistency of approach; and transparency about what enforcement action is undertaken and, why; and recognition partnerships with other organisations is essential.

Occupational road risks

• Research indicates that employees contribute disproportionately to risks on the road and the need to focus on this area was highlighted within Tomorrow's Roads: Safer For Everyone`. The HSE Work-Related Road Safety Task Group is developing proposals that are likely to provide a framework to make a significant contribution to reducing risks, collisions and casualties on the road.
• Companies using London roads, particularly in the public sector, should be encouraged to develop appropriate policies and procedures to minimise the risks to their employees and members of the public alike. If such support were secured it would lead to a critical mass of vehicular traffic providing 'leadership' to others.
• The MPS has developed a Safe Driving Policy that includes elements such as competency based driving assessment and use of 'black boxes' in order to reduce risks and injuries.
• Occupational Road Risk should be included with the Interim Road Safety Plan as a theme.

MPS traffic wardens

• The Traffic Warden Service provides London with an important road policing contribution. In addition to being the primary parking enforcement capability on the strategic road network [Red Routes] they also utilise their skills and powers.
• Previous discussions intended to secure the 'power to stop' should be revisited with a view to expanding their existing role to enable the TWS to make a greater contribution to improving road safety and reducing road casualties.

Ian Brooks
Chief Inspector

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