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Mr Lee Dillon (Newbury) (LD)
I beg to move,
That this House has considered horse and rider road safety.
It is a pleasure to serve under your chairmanship, Mr Dowd. I am pleased to have secured this debate and grateful for the opportunity to raise an issue that has, for far too long, not received the attention it deserves. It is a timely debate as well, because just last week the Government published its new road safety strategy, stating that
“every individual deserves to feel safe and supported”
on our roads. Unfortunately, for many horse riders across the country, that aspiration does not reflect their lived reality. While the Government’s strategy does reference horse riders in some places, alongside other vulnerable road users, this is not consistent, and there is no specific mention of their safety.
The issue goes far wider than a single document. Building a stronger foundation of road safety education, with clearer rules and guidance, is essential to ensure that all road users understand how to behave safely and responsibly when encountering horses on the road. According to data from the British Horse Society, in 2024 there were more than 3,000 road incidents that involved horses.
Ian Roome (North Devon) (LD)
I was shocked to read those statistics, but in Devon since 2020, there have been 375 road incidents involving horses, with 19 horses injured and three killed, and 29 riders injured and one killed. Does my hon. Friend agree that there is a strong case for asking riders across the country to use body cameras to record evidence of dangerous driving, as many motorists and cyclists do today?
Dr Danny Chambers (Winchester) (LD)
I apologise for intervening so soon, but it is important to emphasise how significant this debate is. It is not a niche issue. During my career as a horse vet, I have stitched up and euthanised more horses that have been hit by cars than I can remember—they get broken legs and their owners are injured. This is a very regular occurrence for vets. Just this morning in Winchester, in Hambledon on the B3041, a horse was hit by a car and had to be euthanised. This is not a niche problem, nor is it an unusual occurrence, so I fully support the action that my hon. Friend has taken in securing this debate.
Mr Dillon
I thank my hon. Friend for his intervention, and I ask him to pass on my best wishes to his constituent. That shows why the debate is so important, because this is a daily reality on our national highways.
Behind all the figures we talk about, there is a rider, a family and a community affected by trauma and loss. I was contacted by many people from across the country when they heard about this debate. Laura from Essex experienced a devastating accident while riding her horse, Angel. The pair were struck by a car travelling at 53 mph. Laura was extremely fortunate to survive, but tragically Angel, who was just three years old, did not. That incident starkly illustrates the life-threatening dangers that riders face when sharing the road with fast-moving vehicles, and the heartbreaking consequences that can follow.
Andrew Cooper (Mid Cheshire) (Lab)
Like the hon. Gentleman, a constituent contacted me ahead of this debate and told me that, although many motorists act responsibly, there is an increasing problem with drivers behaving more aggressively and passing horses at unsafe distances. Given that horses can react unpredictably when they think their lives are at risk, that puts everybody’s lives at risk. Does the hon. Gentleman agree that teaching equestrian safety as part of driver training would be an important way of tackling this issue?
Mr Dillon
I absolutely do, and I will come to that later in my speech and also highlight some of the good work happening in police forces across the country on driver awareness, once drivers have been caught going too close to a horse.
Turning to my own constituency, in Lambourn the horseracing industry contributes over £22 million to the local economy each year and supports approximately one in three jobs in the area. It is not just an emotional issue; it is a financial one, too. That concentration of equestrian activity also means there is a higher number of horse-related incidents in my constituency.
Unfortunately, Laura from Essex’s story is not an isolated one. Last May, I had the honour of joining the Project EDWARD—Every Day Without A Road Death—equestrian road safety awareness ride out from Lambourn to Windsor. It is held in memory of a racehorse named Knockalla, a two-year-old racehorse that was killed on a road in my constituency. Heavy rainfall caused flooding and standing water and a local driver who was familiar with the road was proceeding slowly down the centre of the carriageway to avoid aquaplaning. But horses are flight animals and as they approached from the opposite direction a splash of water startled Knockalla, causing her to move into the road. In that split second, Knockalla was struck and suffered injuries so severe that she had to be euthanised. Importantly, this case was not about speeding or reckless driving but was rather a tragic accident, and it demonstrates that even when motorists act cautiously, horses and riders remain extremely vulnerable, as horses are flight animals that can react unexpectedly.
Eighty-one per cent of incidents involving horses and vehicles occur because drivers pass too closely or too quickly. That is why I have consistently campaigned for stronger protections for horses and riders.
Brian Mathew (Melksham and Devizes) (LD)
Does my hon. Friend agree that clear rules on the speed and distance required when passing walkers, cyclists and horses on the road are needed, and that this should be included in driver theory tests and must be at the heart of driver education? Too many walkers, cyclists and horse riders have been hurt in our constituencies, including mine, and it must come to an end.
Mr Dillon
The hierarchy of vulnerability introduced in 2022 is important in establishing who are the most vulnerable on our roads, but the highway code could go further and say “must” go at 10 mph rather than “should”.
Last September, I introduced the Road Traffic (Horse and Rider Safety) Bill. Through that presentation Bill, I called on the Government to strengthen the highway code guidance for passing horses and to improve driver education so that motorists better understand horses’ behaviour and the potentially devastating consequences of their actions. Those changes would raise awareness among all road users and provide greater safety and reassurance when horses are ridden or are pulling horse-drawn vehicles or carriages.
As I have mentioned, last week the Government published the road safety strategy. Although I welcome many of its measures, it missed some relatively straightforward opportunities to better protect horses and riders. The strategy announced that the Ministry of Justice
“will consult on a new victims’ code.”
I welcome that, but it raises an important issue. Under current law, horses are classed as personal property, which means that when one is killed or fatally injured in a road traffic collision, compensation is largely limited to financial loss.
I have recently been contacted by Cathryn from Leeds, a long-standing horse rider and a solicitor who supports people who have suffered serious injuries from horse accidents. She highlights the psychological trauma experienced by injured riders as a recurring theme, which is often compounded by guilt, grief and gratitude that the horse took the main impact and saved the rider from even greater harm. The current legal framework significantly restricts recognition of that emotional distress. I urge the Government to use the consultation on the new victims’ code to consider how horse riders and owners who lose horses can be properly recognised in that framework.
Andrew George (St Ives) (LD)
As my hon. Friend knows, I strongly support his proposed legislation; indeed, I am a sponsor of it. Does he agree that, in order to advance new regulations, the Government need to review whether there is sufficient bridleway capacity across the countryside to avoid the necessity of using roads? It is clear that there are insufficient bridleways across much of the countryside, which is why riders end up having to use the roads to traverse.
Mr Dillon
My hon. Friend makes an excellent point. Councils are responsible for maintaining bridleways, but unfortunately their funding has been cut over numerous years and they do not have the money to do so. That forces more riders to use the roads because other routes are not available. Indeed, I was contacted this morning by a lady who said that they do not have any bridleways where she rides, only pavements, so she always has to be on the carriageway. She asked whether we would consider allowing horses to use public pavements in that instance.
Vikki Slade (Mid Dorset and North Poole) (LD)
I am grateful to my hon. Friend for bringing forward this debate and his Bill. Does he agree that it is not just about bridleways? Forestry England has recently introduced quite substantial fees for carriages, which are used by a lot of disabled people, to use their paths, and complex paperwork more akin to that for people organising events. Does he agree that we should call on Forestry England to review that for individual carriage drivers?
Mr Dillon
I thank my hon. Friend for that intervention. The Forestry Commission looks after our forests. They should be open for us to be able to enjoy, and the Forestry Commission should work with all relevant groups to make open access as easy as possible.
The road safety strategy also announces the establishment of a new road safety board. Given that horses and riders are among the most vulnerable of road users, will the Minister commit to ensuring that an equestrian representative organisation, such as the British Horse Society, is included on that board? I know that horse-related bodies have been on previous safety advisory boards.
Sarah Russell (Congleton) (Lab)
I support the hon. Gentleman’s point about the importance of equestrian representation in these structures. In my constituency, there is a major equestrian centre at Somerford. We also have many horse riders throughout the area, and there have been multiple accidents. We really need to take action on this issue, and I know that the Minister will be listening carefully.
Mr Dillon
I thank the hon. Lady for her intervention, which shows that this is not a party political issue; rather, it is about the safety of riders. I am sure that the Minister, too, will take the hon. Lady’s views onboard.
I welcome the commitment to publish the national guidance on road safety education training and publicity, but I urge the Government to align that work with the measures in my Bill and in particular the need for stronger education in the driving test for new drivers.
Helen Maguire (Epsom and Ewell) (LD)
Horse riders in my constituency are absolutely spoilt for hacking on Epsom downs, but there are lots of busy roads to navigate. Even at Pegasus crossings, drivers are jumping red lights as horses are approaching, which makes it incredibly dangerous. Many have reported near misses, and there have been instances of loose horses in Epsom as a consequence. Does my hon. Friend agree that better education on Pegasus crossings is vital to reducing the number of near misses and potential deaths of riders and horses?
Mr Dillon
My hon. Friend makes a key contribution with that intervention: it is that holistic approach to all road traffic management systems that people need to be aware of.
It is vital that young drivers understand how to drive safely on our rural roads and how to behave when encountering animals. Alongside that, I urge the Government to consider requiring companies that operate large vehicles, such as buses and delivery lorries, to include specific equine road safety training as part of their initial driver training. In 2019, a horse rider suffered serious injuries, including a fractured pelvis, after being thrown on to a pavement when her horse was spooked by a bus that passed too quickly and too closely. I think that shows why we need that initial driver training.
Adam Jogee (Newcastle-under-Lyme) (Lab)
I am grateful to the hon. Member for giving way; I will have to buy him a pint for making him wait.
Newcastle-under-Lyme is home to many rural communities where horse riding is a much-loved and much-enjoyed way to spend time. My constituent Carol Whitehouse took me out recently on her horse, and Sarah, who runs Horsleys in Audley, lent me her boots because I was wearing trainers. Both spoke of the fear and concern they feel as they ride their horses, particularly as a result of big lorries, so the points that the hon. Member has raised about Berkshire and other places across the country are felt strongly in Staffordshire, too.
Peter Dowd (in the Chair)
Order. I just want to bring it to Members’ attention that we will get to the Opposition spokespersons and the Minister at 10 past. Lots of people wish to speak and we have had lots of interventions. I am going to be as flexible as I possibly can, but I am not quite sure that we are going to get through all the Members, so bear that in mind when you are bobbing, intervening, and so on.
Mr Dillon
Thank you for that guidance, Mr Dowd. I will move on.
I want to talk about some excellent examples of best practice that are already in place. In Leicestershire and Rutland, the rural policing team, alongside Leicestershire Fire and Rescue Service, have been delivering the “Virtual Insanity Experience” through the Hazard Express van. That involves a mounted volunteer riding on a bike, and if drivers pass dangerously, they are invited to experience that situation through VR headsets. The scheme is focused on education, not punishment, and it could be rolled out nationally for people coming across horses so that motorists understand the experience of a horse rider when a vehicle passes too quickly or closely. I urge the Minister to look at the wider adoption of that scheme.
Before Christmas, the Minister raised the Government’s desire to re-publicise the 2022 highway code changes. Despite £2.4 million being spent on advertising, a YouGov poll in January 2023 found that 25% of adults were unaware of those changes. Mary from south Derbyshire told me:
“The Highway Code revisions made in January 2022 have not really enhanced our safety when using the roads.”
Sarah Dyke (Glastonbury and Somerton) (LD)
Given the lack of knowledge about the changes to the highway code, Somerset council has a road safety initiative that offers training to riders and drivers. Would my hon. Friend join me in congratulating Somerset council on its position and on the training it is providing to make our roads safer?
Mr Dillon
I do add my congratulations to the council. This debate pulls out the local innovations that are taking place, which the Government can hopefully consider rolling out to a national platform.
I am conscious of time and of other hon. Members who wish to contribute, but it is important to thank the BHS, the British Horseracing Authority, Project EDWARD, the Blue Cross, Brake and the hundreds of people from across the country who have written to me in support of this debate. I urge the Minister to ensure that horses, riders, carriage drivers and all equestrian users are fully included in the Government’s road safety ambitions, not just in principle, but in practice. I hope that the Minister will reflect carefully on the points raised, and commit to taking this work forward.
Several hon. Members rose—
Peter Dowd (in the Chair)
I was about to remind Members to bob if they wanted to speak, so thank you very much for doing so. Members will have only two minutes, so bear that in mind, especially when taking interventions, otherwise we will not get through everybody.
Jim Shannon (Strangford) (DUP)
It is a pleasure to serve under your chairship, Mr Dowd. I thank the hon. Member for Newbury (Mr Dillon), who I spoke to beforehand about the issue. He is absolutely on the button with what he has requested.
I am the MP for a rural constituency, and I live on a farm in the midst of the unmatchable and beautiful countryside of Strangford, so the presence of horses on the country roads is not surprising. I see them all the time; my neighbours all have horses, and I know personally to slow down and give the horse a wide berth of 2 metres. There are riding schools and stables in the vicinity as well, so it is not simply the horse signage that tells people to be mindful in their road usage. For people who are not local, however, their knowledge is limited, and that is why it is essential that road users in the country are aware of the potential to come across a number of horses on the country roads.
I support the presentation Bill of the hon. Member for Newbury, and I hope that it can progress further. Some in the city may not be aware of the prevalence of horses on the roads, so their first trip to the country might bring about a whole new world. They might not understand that the need to slow down to pass a horse and give it a wide berth is not only useful—it is vital. Operation Gallop by the Police Service of Northern Ireland, NI Direct and the British Horse Society all promote shared responsibility, because horses are easily spooked. Instead of driving fast by a horse and rider, motorists must slow to 10 mph and pass 2 metres wide of the horse, avoiding noise and sudden movements. Riders should wear hi-vis clothes, use signals and follow road rules, keeping left and to single file if the road is busy. That can be the difference between life and death.
Mark Sewards (Leeds South West and Morley) (Lab)
Will the hon. Gentleman give way?
Mark Sewards
Very briefly, a young woman from my constituency described the scenario that the hon. Gentleman talks about. She is insured and wears hi-vis clothes, but now faces regular intimidation and abuse, so she has to go out with a camera. Despite that, she still faces those problems. Does the hon. Gentleman agree that the Government’s flagship road safety campaign is exactly the right way to go, but that we need to do more in this area to keep riders safe?
Jim Shannon
I thank the hon. Gentleman for that.
I will be very brief. As of late 2025, the British Horse Society said that a significant majority of equestrians—78%—have experienced an incident while using the roads, which is what the hon. Gentleman was referring to. Nationally, 81% of incidents occur because a driver passed a horse too closely or quickly.
Knowledge and an understanding of the consequences can and will address these concerns. I support the drive of the hon. Member for Newbury to put safety first on our countryside roads for our horses and riders throughout this United Kingdom of Great Britain and Northern Ireland.
Steve Yemm (Mansfield) (Lab)
It is a pleasure to serve under your chairmanship, Mr Dowd.
Much of today’s discussion has focused, rightly, on vehicles, but I want to highlight another hazard that affects riders on roads, pavements and paths: uncontrolled dogs. My constituent Katie Smart tragically lost her horse, George, after he was chased on to the road by an out-of-control dog. The dangers that led to this tragedy are present when horses are ridden on roads, on pavements and in many other areas; riders are frequently confronted by dogs off the lead, which can cause horses to bolt, very often into roads, creating a real risk of collision.
I raised those concerns with the Department for Environment, Food and Rural Affairs, and I am grateful to Baroness Hayman for her engagement on the issues. She has since met my constituent to discuss them, and kindly agreed to meet her again to explore what further support can be provided to all riders who face this risk. Baroness Hayman’s willingness to consider solutions to help people like Katie is very welcome and constructive. It demonstrates the kind of collaboration that is needed to resolve these issues.
Horse riders should be able to use roads, pavements and shared paths without risk or fear of injury. This is about protecting lives, preventing collisions and keeping our communities safe.
Rebecca Smith (South West Devon) (Con)
It is a pleasure to serve under your chairmanship, Mr Dowd.
Horse and rider safety is a matter of real importance to urban fringe communities like mine, and many of my constituents, both urban and rural dwellers, asked me to attend today. Whether it is the Dartmoor pony on Devon’s coat of arms, Wembury bay riding school by Wembury beach, or Erme valley riding school for the disabled in South Hams, horses are central to urban fringe life, the local economy and our heritage in South West Devon.
In Devon, the issue is especially close to home. Dartmoor ponies, which are an iconic part of our landscape, have roamed freely across unfenced moorland since the bronze age, and they frequently cross roads in the national park —dealing with them is something that new drivers have to learn pretty early on. The ponies are a symbol of our heritage, yet they are regularly injured or killed in collisions. Devon and Cornwall police reports that 144 animals, including ponies, cattle and sheep, were killed on Dartmoor’s roads in 2024. Local initiatives, such as improved signage and reflective collars, make a difference and are welcome, but they are not a substitute for wider awareness and driving safely, as we have heard this afternoon.
We also need to look at localised speed limits. For example, in Ivybridge, the B3213 has a 60 mph limit until just after a road that is used by local riding schools. It becomes a 30 mph road at a certain point because of a new housing development, but the council has pushed back on all attempts to reduce the speed limit on the other part of the road that would be used by riders. I would be grateful if the Minister could comment on that. Is there anything we can do to incentivise local councils to think about roads used by riders when they set speed limits and road policies?
I thank all those who have written to me to raise this important issue. I continue to work to support them on it.
Terry Jermy (South West Norfolk) (Lab)
It is a pleasure to serve with you in the Chair, Mr Dowd.
I want to share with hon. Members and the Minister the case of Susi Rogers-Hartley from Wiggenhall St Mary in my South West Norfolk constituency. Susi is an accomplished lady: she is a horse rider, military veteran and GB Paralympic athlete. She was the first horse rider to represent Great Britain at show jumping at the Paralympics. For Susi, horse riding gives her quality time out of her wheelchair and a sense of freedom that is difficult to replicate.
In 2021, Susi was hit by a car. The driver tried to pass her on a single-track road, and got so close that Susi’s leg was trapped between the driver’s car and her horse. The driver picked up speed and the horse bolted. Susi fell on to the vehicle and was subsequently dragged for 20 metres along the road, suffering a head injury and a cracked elbow. On another occasion, on Magdalen High Road in my constituency, a driver hit Susi and her horse from behind. Her horse, whom she loved very much, had to be put down because of the injuries it sustained. In Susi’s words, the driver
“got an awareness course. I got a dead horse and thousands in vets bills”.
Horse riders tell me there is often little to no enforcement in accidents involving horse riders.
Growing up in my constituency, I remember routinely seeing people out and about riding a horse, but as cars have got bigger and faster and as people have become less respectful of our country roads, other users have been pushed out, whether they are walkers, cyclists or horse riders. In addition to safety concerns, the years of austerity and the cuts to local council budgets have seen many bridleways fall into a state of disrepair, meaning there are fewer opportunities for horse riding as many bridleways are simply inaccessible.
I ask the Minister to ringfence support for horse rider safety campaigns, such as the Pass Wide and Slow campaign. I also ask what more can be done to ensure that local councils properly maintain bridleways, which are crucial for horse riding in rural areas.
Manuela Perteghella (Stratford-on-Avon) (LD)
I am grateful to my hon. Friend the Member for Newbury (Mr Dillon) for securing this important debate in support of the equestrian community. Stratford-on-Avon is a deeply rural constituency with fast-moving country roads and narrow lanes. For many riders, using public roads is not a choice but a necessity, and too often that comes with real and frightening risks. Per mile travelled, rural roads are the most dangerous in the country, accounting for well over half of all road deaths.
Jayne Kirkham (Truro and Falmouth) (Lab/Co-op)
In my constituency we have Cornish hedges, which are made of stone, and they make it even more dangerous, particularly as a lot of drivers do not realise that they are stone. They make it even more important for drivers to give horses as much room as possible.
Manuela Perteghella
I thank the hon. Lady for highlighting that issue. I agree with her.
As we have heard, the figures are horrendous: thousands of incidents involving horses result in injury and death. These incidents are widely under-reported, but the harm they cause is very real. Most concerning of all is that more than four in five of these incidents are caused by drivers passing too fast or too close, and that is despite clear highway code guidance introduced in 2022 advising motorists to slow right down and give horses plenty of space. Too many drivers simply do not know about that guidance or do not understand the danger of ignoring it.
There is also the issue of loud engines, such as those in motorbikes, which can startle horses. That is why I strongly support the Liberal Democrats’ Road Traffic (Horse and Rider Safety) Bill, which was introduced by my hon. Friend the Member for Newbury. Clear rules, proper coverage in the driving theory test and better driver education will save lives. Where possible, horse riders should not have to rely on roads at all. The Liberal Democrats have set out plans to expand safe off-road routes through the countryside, giving riders the freedom to travel safely along bridleways.
Finally, I thank the Warwickshire road safety partnership and Warwickshire horse watch, which work to support the equestrian community and provide advice on safety. Horses are a vital part of rural life in constituencies like mine. Their safety, and the safety of those who ride them, deserves far greater priority than the Government are currently giving it.
Dame Nia Griffith (Llanelli) (Lab)
I thank all those who have written to me regarding this very important topic, particularly Sandra Downey at Talcarn Farm, who allowed me to have a ride in a horse-drawn carriage on a main road—believe me, that is really scary and it made me realise their vulnerability. Of course, we have the highway code and the guidance to pass wide and slow, but how do we get that message across more effectively? As our new road safety strategy says on horse rider safety,
“despite an investment of £2.4m in paid advertising raising road users’ awareness of the changes to The Highway Code, it is clear from research by external road safety stakeholders that more work is needed to embed these changes.”
Aspects of transport are devolved, and I am aware that the Welsh Government have taken action on this, including by incorporating key British Horse Society messages into the Pass Plus Cymru training for young drivers, but we all know that more is needed. Last week, on horse safety, the Minister said:
“We will look at what more we can do to strengthen the advice and guidance, and ensure that people are aware of those issues in the highway code.”—[Official Report, 8 January 2026; Vol. 778, c. 478.]
The question is: how aware are drivers of the dangers of rural roads? The speeds that we see drivers do are frightening, and drivers show no consideration for the lack of visibility on bends or at junctions where farm tracks come out on to roads. Could we put a greater emphasis on rural roads, and particularly horse rider safety, in driving tests? What other tools do we have? We can educate the willing and prosecute the transgressors, but that is likely to happen only when there has been a serious accident—when it is too late.
We absolutely cannot be complacent about this issue. I ask the Minister to use all the means at her disposal to identify the most effective ways of getting the message across; to implement a concerted, specific strategy on horse and rider safety; and to work collaboratively with the Welsh Government on any devolved aspects of such a strategy.
Edward Argar (Melton and Syston) (Con)
I congratulate both the hon. Member for Newbury (Mr Dillon) and the British Horse Society for their work on this hugely important issue. The demand to speak in the debate shows the importance of this issue to so many hon. Members and communities. It is especially important in rural constituencies such as mine, which has a very large number of riders and horses, and is home to the Defence Animal Training Regiment at Asfordby. It is rare to be out and about in the constituency and not see people out riding in the Vale of Belvoir or other places; it is an activity that appeals to people of all ages and backgrounds.
BHS stats suggest that there were only 21 incidents in the Melton area out of 234 in Leicestershire between March 2021 and the end of 2024. That is possibly because it is a very rural constituency, and many drivers are horse-aware and seek to pass sensibly—slowly and at the appropriate distance. I am grateful to the hon. Member for Newbury for rightly highlighting the work of Leicestershire police and Leicestershire fire and rescue service, but of course every incident is one too many, and we do not know how many incidents go unreported. There is a strong bond with horses in rural communities, as there is a strong bond between horse and rider.
I have been in the Minister’s place, on the receiving end of campaigns by campaign groups, and I have to say that some are challenging to agree to, but the BHS is very measured and pragmatic. What consideration are the Government giving to clarifying highway code rule 215 on treating horse and rider as a single unit, rather than as a person and property? What more can be done to improve communications and awareness? I suspect that many incidents arise from ignorance, not intent. Will she take the opportunity offered by the road safety strategy to improve safety for riders and horses, and indeed improve access to safe routes?
Andy MacNae (Rossendale and Darwen) (Lab)
It is a pleasure to serve under your chairship, Mr Dowd. In the interests of time, I shall ditch what I assure you would have been a fascinating speech and reflect on just a couple of areas.
I congratulate the hon. Member for Newbury (Mr Dillon) on securing this debate. I very much agree with and support the points he made. However, I slightly challenge the idea that because the road safety strategy does not mention horse riding specifically and repeatedly, it is not truly covered. The strategy is based on a safe system approach that recognises that all users are vulnerable, that human error is inevitable but deaths and serious injuries are not, and that the road and vehicle environment should be designed to protect all users as much as possible. In covering safe roads, roadsides, road users, speeds, vehicles and post-crash response, it is truly comprehensive. In that regard, it offers a huge number of opportunities to directly impact the safety of horse riders, such as opportunities for education, enforcement, better street design and technology that protects vulnerable road users from human error. I think the strategy is truly comprehensive and can address many of the areas that have been identified without necessarily needing to identify horse riders specifically.
Members have mentioned that the strategy recognises that more needs to be done to deliver on the intent of the 2022 highway code and its hierarchy of road users, in order to recognise the vulnerability of some of those users. Will the Minister reflect on what more can be done to deliver on that intent? Finally, I recognise that safe physical infrastructure and, ideally, getting horses off the road and on to good bridleways or greenways can make a massive difference. What more can be done to ensure that local authorities genuinely have the funding to deliver the safe infrastructure for which local partnerships, including users —horse riders and others—regularly identify a need?
Jack Rankin (Windsor) (Con)
I thank the hon. Member for Newbury (Mr Dillon) for securing this important debate and for his wider efforts on this issue, including his private Member’s Bill and his early-day motion, which 44 Members from right across the House supported. That is the gold standard for how to champion an issue in Parliament, and credit is due to him.
This campaign came across my desk for tragic reasons, as it will have for many Members here today. Last autumn, I met Maddy Tinton, the 15-year-old rider of Blaze, her mother, Jane, and Coral Sheldrake, the owner of Beaumont Stables in Old Windsor in my constituency. Last August, Maddy was riding Blaze on Priest Hill, a road that must be used to access Windsor Great Park from Beaumont Stables, when the pair were hit following a two-car collision. Disgracefully, the driver involved was travelling at 80 mph at 6 o’clock on a Wednesday morning. Thankfully, Maddy came out of the incident relatively unscathed, but we should be in no doubt that it could have been far more serious. Blaze was not so lucky and had to be put down.
So often, the horse comes off worse, suffering the full force of a collision and often saving their rider in the process. I know from speaking to Maddy, who absolutely loved Blaze, the emotional toll that Blaze’s death has taken on her. It is clear to anyone who hears Maddy and many other riders talk about their beloved horses that we are dealing with a truly unique connection between human and sentient animal. That connection should be reflected in how horses are treated on our roads, in culture, in law and in practice. They are not inanimate objects; they are our friends.
I welcome some of the changes that the previous Conservative Government made on the hierarchy of road users, and I am grateful for the Minister’s response to my letter at the time of the incident. I wonder whether she could develop that in her response to the debate, especially given the wider objectives of the hon. Member for Newbury and the Government’s recently published road safety strategy.
Aphra Brandreth (Chester South and Eddisbury) (Con)
It is a pleasure to serve under your chairmanship, Mr Dowd.
Just last week, I had the pleasure of visiting Harry Zimman, a constituent who is a keen rider. He highlighted two significant issues. The first is access to bridleways. Even in areas with excellent riding routes, such as Cheshire, riders must often travel along narrow and winding lanes to reach them. Consequently, they can quickly find themselves in dangerous situations, because even the best-trained horses and most attentive riders cannot eliminate the fact that horses are living, thinking animals that may react suddenly to perceived danger.
Bridleways are too often overlooked in planning and infrastructure decisions. For example, in my constituency the Tarvin bypass cut across a bridleway and was replaced only by signage, effectively cutting off riders.
Esther McVey (Tatton) (Con)
I thank my hon. Friend and constituency neighbour for giving way. I am getting an increasing amount of correspondence from Tatton constituents concerned about careless drivers on country roads and the dangers they pose to horses and riders. Does she share my concern about the changes to planning rules by this Labour Government—a Government who show so little regard for the countryside, as we saw with the family farm tax—under which green belt will disappear and cities will bleed into the countryside, making the roads even more dangerous, city dwellers not understanding the etiquette of country roads?
Aphra Brandreth
I thank my right hon. Friend for that really important intervention. We need to understand what the removal of our countryside and green belt will mean for people using rural roads, and the real impact that some of these developments will have.
For riders and their horses—I should add carriage drivers, who are also often overlooked—the most obvious dangers on the road are fast-moving vehicles, but less obvious hazards can be just as serious. A plastic bag in a ditch, or a cyclist passing too closely, might startle a horse. Harry described a cyclist squeezing between a rider and a car, badly startling the horse. Cyclists might not be aware of their impact, but such incidents can pose a danger to all road users.
As we have heard, many drivers remain unaware that the highway code requires them to pass a horse at no more than 10 mph and with at least 2 metres’ clearance. We must do more to improve education and ensure that horse riders are properly reflected in road safety policy.
Edward Morello (West Dorset) (LD)
I congratulate my hon. Friend the Member for Newbury (Mr Dillon) on securing this debate.
Per mile travelled, rural roads account for over 60% of all UK road deaths. Last year, I met a group of constituents who keep their horses in stables in the Forston area. They are experienced riders, and they described repeated near-misses caused by drivers going too fast or passing too close. In fact, there have been 15 motor vehicle incidents recorded in that small area alone.
My hon. Friend has already outlined the changes to the highway code in 2022, but I wonder how many of us here today could say that we have read the highway code since we passed our test. The reality is that on tight, winding rural roads, the guidance is widely ignored.
Dorset police and Dorset Road Safe Partnership do excellent work through schemes such as Horse Safe and Operation Close Pass. Such operations can change attitudes, but they need to happen more often in the places where the risks are highest. My constituents are asking for increased signage, more enforcement and clearer information on how police work with the British Horse Society to track and respond to incidents.
In 2024, the British Horse Society recorded more than 3,000 road incidents involving horses: 58 horses were killed and 80 riders injured. Four in five of those incidents were caused by drivers passing too fast or too close. We cannot continue to accept that as an inevitable toll. That is why I strongly support the Road Traffic (Horse and Rider Safety) Bill introduced by my hon. Friend the Member for Newbury. I hope the Minister will also take this opportunity to support it.
John Milne (Horsham) (LD)
It is a pleasure to serve under your chairmanship, Mr Dowd. Horse riders are not a marginal group on our roads and we should stop treating them like one. They are a vital part of rural life.
I want to thank Sophie from Billingshurst, a village in my constituency, who wrote to me ahead of the debate. She argues that we are facing a cultural problem. There is a fundamental lack of understanding about how to drive in close proximity to horses, whether they are being ridden or transported. She described being tailgated for miles while towing a horsebox. Eventually, the driver overtook and cut sharply in front of her, forcing an urgent and potentially dangerous stop. Anyone who understands the weight and stopping distance of a vehicle carrying live animals will recognise how serious that could have been. Thankfully, neither horse nor rider was hurt.
Riders are being pushed into using roads more extensively, often because there is no alternative. In Shipley, a bridleway bridge has been closed for more than two years with no clear repair timetable, forcing riders on to busy roads, simply to access legal routes. Horse riders seem to count as low priority when it comes to highways funding.
James Naish (Rushcliffe) (Lab)
Just last month I presented a petition in this place about a greenway in my constituency between Radcliffe and Cotgrave, which has been closed for two years. That means that people such as Jacqui, who rides a horse, cannot use it. Does the hon. Member agree that we need to encourage the expansion of and investment in this type of infrastructure?
Peter Dowd (in the Chair)
Order. I ask the hon. Member for Horsham (John Milne) not to take the opportunity of the extra minute he has just been given due to that intervention.
John Milne
I thank the hon. Member for the intervention.
We must also place this debate in the wider context of changing rural road use. In Cowfold parish, the accident rate has doubled in the past five years, with three fatalities and 20 serious injuries. Traffic volumes have increased but road infrastructure has not kept pace. Although stronger regulation on speed and passing distances is welcome and necessary, it is not sufficient on its own.
We need better driver education, clearer national messaging and a cultural shift in how horses are understood by other road users. We need to rethink rural road policy more broadly. Can we take action to stop HGV routeing systems sending unsuitable vehicles through villages and bridleway links? Can we look at weight limits and improved road services, and make it easier for communities to introduce lower speed limits, as has been done successfully in parts of Somerset, for example?
In conclusion, I thank my hon. Friend the Member for Newbury. I very much support the measures he suggests and I hope the Minister will listen.
Steff Aquarone (North Norfolk) (LD)
It is a pleasure to serve under your chairship, Mr Dowd. I congratulate my hon. Friend the Member for Newbury (Mr Dillon) on securing this debate and his long-running championship of the issue. He is a true champion of rider safety; the riding community could hope for no better advocate in this place.
Our transition to cars has hugely changed the role that horses play in human society, but they are still a treasured species. The pursuit of riding is beloved by many of my constituents. North Norfolk has a proud community of horse riders who enjoy riding through our beautiful countryside and rural landscapes. I have heard from a number of riders who have great concerns for their safety when riding on roads in rural North Norfolk. It is clear that the status quo does not do enough to protect those riders. The contributions by my hon. Friends the Members for Stratford-on-Avon (Manuela Perteghella), for Horsham (John Milne) and for West Dorset (Edward Morello), and others, are testimony to that.
Riders are vulnerable road users, just like cyclists and pedestrians. Many of them will have been understandably disappointed not to have received greater attention in the Government’s recent road safety strategy. That strategy, however, is not the only thing that lets down riders. In Norfolk, our road safety policies are painfully unfit for purpose. We have seen this play out in all-too-serious reality with injuries and deaths along the A148 in my constituency. That road has a number of stables along it, meaning there is a high chance that riders find themselves on a stretch of road proven to be dangerous. We have to make sure that they are better protected, along with other vulnerable road users, to prevent future tragedies in our rural community. That is why the Bill that my hon. Friend the Member for Newbury is proposing is so important. It makes very modest changes to the current wording around horse riders in the highway code, but would kickstart a change in behaviours around riders and encourage far more responsible driving when sharing the roads. It would also ensure that education around equestrian safety is improved in driving tests, meaning that people will begin their lives as drivers with a stronger awareness of how to drive in a way that best supports riders and keeps drivers themselves safe.
Many riders would find it far preferable to be able to ride off the roads away from the level of risk that many have described in this debate today. Unfortunately for them, the lack of available bridleways and safe paths forces them on to the highway. This is an area on which we Liberal Democrats are pleased to propose solutions: we want communities to be better supported to turn abandoned rail links without the prospect of reopening into safe, active travel footpaths and bridleways, giving vulnerable road users more options to travel away from roads.
Furthermore, in rural Norfolk, aspects of our network are seriously outdated, and narrow and almost unsafe routes into villages have seen most of their traffic replaced by newer, larger roads. We can transform some of those into bridleways and active travel routes, reducing the burden on local authorities to keep almost abandoned roads to a drivable standard and widening opportunities and access.
We can do so much better for horse riders and for drivers, too. There are big opportunities to deliver brighter outcomes for the horse riding community and allow them to feel safe and seen while enjoying their pursuits. What helps them helps so many others: we can improve paths, bridleways and access to nature at the same time. In that spirit, I hope the Minister can reflect on the proposals we are making and fully engage with the riding community about their concerns. I hope that we can move forward with safer roads, happier riders and an end once and for all to the accidents, injuries and tragedies we have heard about today.
Greg Smith (Mid Buckinghamshire) (Con)
It is a pleasure to serve under your chairmanship, Mr Dowd. Too often when we talk about rural activities, too many dismiss them as relics of a bygone age. Those of us who represent rural constituencies know that nothing could be further from the truth. Horse riding remains a vital living part of rural life, deeply embedded in the culture, economy and daily rhythms of our communities. That reality makes it all the more important that we take seriously the safety of the horses and riders on our roads.
My constituency is overwhelmingly rural—home to many stud farms, riding schools and equestrian centres that rely on local road networks as part of their everyday operation. Riders frequently use narrow country lanes, often with no pavements, limited passing places and little room for error. Such roads were not designed for modern traffic speeds or volumes, yet they are shared by horses, cyclists, pedestrians and vehicles. For less experienced riders, these interactions can be especially intimidating. Horses can be easily startled by sudden movement or noise, and situations can escalate quickly if drivers approach at speed or pass too closely.
Joy Morrissey (Beaconsfield) (Con)
My hon. Friend makes an excellent point. In Buckinghamshire there are many single-lane country roads, which is where many of the accidents occur. It would be wonderful to highlight that and how to address that moving forward.
Greg Smith
I am grateful to my hon. Friend for raising that point. She is absolutely right and I wish her a speedy recovery from her own horse-related incident. What might seem a minor lapse in judgment from behind the wheel has serious and sometimes devastating consequences for riders and horses, given that the rider has limited ability to control a frightened horse.
A further recurring challenge in rural areas is poor visibility. Constituents have contacted me about near misses on lanes with high grass verges and dense hedgerows, especially during the spring and summer. Such conditions can severely restrict sight lines, meaning that horses and vehicles may appear suddenly, giving drivers little opportunity to reduce speed or pass with the care that safety demands. I was pleased to see that Buckinghamshire council, a council I know the Government are keen to learn from, has worked constructively with the British Horse Society to introduce simple and effective measures in partnership.
Horse riding is far from a niche pursuit. The British Equestrian Trade Association estimates that more than 1.8 million people ride regularly, with around 3 million participating overall. For many rural communities, riding is a source of wellbeing, fitness, employment and social connection. Yet all that is undermined when riders and their horses feel unsafe simply travelling on the road. One death is always one too many, and although departmental data records a relatively small number of fatalities in recent years, there remain far too many serious incidents. The British Horse Society’s “Horse i” app recorded that 58 horses were killed in equine road-related incidents, with more than 3,100 incidents in 2024 alone. Many of those involved drivers passing too closely, with devastating consequences.
It has been said in this debate that changes to the highway code under the previous Government significantly strengthened protections for horses and riders. The introduction of the hierarchy of road users was important, but the reforms went further, including clearer guidance on passing distances and how drivers should behave when encountering horses at junctions. Although the current Government have published their road safety strategy, it is difficult to see horse riding as a clear priority within it. Despite describing the strategy as being “for everyone”, horses receive only limited mention and there were no references at all in the consultation to proposed changes to motoring-offence penalties. That raises fair questions about how the Government intend to strengthen protections for riders in practice. I would welcome greater clarity from the Minister on that point, as well as an explanation about why the THINK! road safety campaign budget was cut by £1.2 million last year.
Could the Minister set out what specific campaigns the Government intend to introduce to make sure that drivers are aware of their responsibilities when encountering horses—particularly in rural areas, where these interactions are most common? Ultimately, rules are meaningful only if they are understood and enforced. Dangerous driving that intimidates or endangers horses and riders must be taken seriously, and penalties should properly reflect the risk posed by such behaviour.
The Parliamentary Under-Secretary of State for Transport (Lilian Greenwood)
It is a pleasure to serve with you in the Chair, Mr Dowd; I know you have a deep personal commitment to road safety. I congratulate the hon. Member for Newbury (Mr Dillon) on securing this debate and thank him for raising the vital issue of road safety and vulnerable users, specifically horse riders. It is clear that this concern is widely shared across the House. I do not know how I am going to do justice to it in the next eight minutes. This debate is aptly timed, as we published our new road safety strategy last week.
I stress the importance of road safety around animals. I know how vital horses are to rural areas, such as West Berkshire, and I have been very sorry to hear about collisions involving horses and riders. I pass on my condolences to all those who have been affected by these tragic incidents, including the death of the racehorse Knockalla in Lambourn. We also heard about Laura, who lost her horse Angel, Katie, who lost her horse George and Maddy, who lost her horse Blaze. We were all horrified to hear the description by my hon. Friend the Member for South West Norfolk (Terry Jermy) of what happened to his constituent, Susi. I recognise how horrible it must be to lose an animal in that way, and stress the importance of keeping our roads safe for all road users.
As has been noted, the highway code was updated in 2022 to improve safety, particularly for the most vulnerable road users. The Department for Transport introduced the hierarchy of road users, which sets out that those who can cause the greatest harm in the event of a collision bear the greatest responsibility to reduce the potential threat that they pose to others. The highway code changes included strengthening the guidance on safe passing distances and speeds when overtaking horse riders. I encourage everyone in the country, especially drivers, to look at the “Rules about animals” section of the highway code.
Joe Morris (Hexham) (Lab)
The highway code needs proper signage to remind drivers of their obligations. Does the Minister agree that it is important the council maintains signage properly, warning users of where there are likely to be horses—such as in Heddon in my constituency, where unfortunately the county council is dragging its feet on getting appropriate signage in place?
Lilian Greenwood
My hon. Friend makes an important point, and I agree with him.
As has already been noted, despite the investment of £2.4 million in paid advertising raising road users’ awareness of the changes to the code, it is clear that more action is needed. As set out in the strategy, we are considering options to improve the safety of both riders and their horses. We will work with stakeholders such as the British Horse Society as we undertake that work.
Lee Pitcher (Doncaster East and the Isle of Axholme) (Lab)
What we have heard today is really the business case. We need horses in rural areas for businesses; if we lose a horse, we do not protect our local economy. Would the Minister agree and take that into account when thinking about the future?
Lilian Greenwood
My hon. Friend has made his point very well.
We will also continue to encourage safer road user behaviours in order to improve safety for all vulnerable road users, including horse riders, motorcyclists, cyclists, pedestrians and road workers. Our flagship road safety campaign, THINK!, will continue to do that, alongside the use of social media channels and other partner organisations.
The Driver and Vehicle Standards Agency also does important work to promote awareness of horse and rider road safety. The DVSA publication, “The Official DVSA Guide to Driving: the essential skills”, contains a section on horses, and horses also feature in the hazard perception tests that all drivers have to take to obtain their licence.
We have already dealt with a number of the statistics. In 2024, there were 63 collisions involving ridden horses, in which 71 people were seriously or slightly injured. That is according to STATS19 data, and it is completely unacceptable. We know that, through targeted action on speeding, drink and drug-driving, and mobile phone use, alongside the education piece we have already discussed, those tragedies can be prevented.
Experts and campaigners have long called for a comprehensive strategy that treats road safety as a priority. Our new road safety strategy shows that this Government are not only listening but leading to build a safer future for all road users, including horse riders. Hon. Members will know that the strategy sets an ambitious target to reduce the number of people killed and seriously injured on British roads by 65% by 2035. I think that the vital work we will do—and I take on board all the contributions that have been made—will save lives on Britain’s roads and make them safer for absolutely everyone, including horse riders and their horses.
In the short time I have left, I turn to some of the questions that have been raised. The hon. Member for Newbury asked about equestrian representation on the national road safety board. That is yet to be considered; however, he makes the important point that we must ensure we hear the voices of all road users as we undertake that work. I will certainly take that point away.
There was a question about whether equine road safety is included in initial driver training for those who drive for work. I have already described how it is incorporated within the driving test, and I will consider what further work we can do to strengthen the guidance and advice that goes to those who employ drivers and riders. I was pleased to hear about the VR headsets in use in Leicestershire; I absolutely agree that understanding how frightening a close pass can be is really valuable. I saw a video produced by Cycling UK on close passes on social media just yesterday. Frankly, it sent a shiver down my spine. Vulnerable road users need that safe space.
The hon. Member for South West Devon (Rebecca Smith) asked about speed limits. They are obviously a matter for local councils, but we are updating our guidance on setting such speed limits. I will take account of the point she made.
A number of matters raised today fall outside my remit. However, I will ensure that my DEFRA colleagues are alerted to the concerns raised regarding the provision and management of bridleways, and indeed the issues my hon. Friend the Member for Mansfield (Steve Yemm) raised about uncontrolled dogs. I apologise if I have missed any of the questions raised; I will ensure that I work with my officials and write to Members if I feel that I have not provided them a sufficient answer in the time available.
As I conclude, I again pass on my condolences to all those who have been affected by this issue. Improving road safety is one of my highest priorities, and this Department will continue to work hard to bring down deaths and serious injuries on our roads. I again thank the hon. Member for Newbury for raising this vital issue and congratulate him on what has been a very fulsome debate.
Peter Dowd (in the Chair)
I thank everyone for their flexibility; we managed to get everybody in.
Question put and agreed to.
Resolved,
That this House has considered horse and rider road safety.