Safety of Riders and Horses on Rural Roads

Jesse Norman Excerpts

Tuesday 4th July 2017 Westminster Hall

[The Parliamentary Under-Secretary of State for Transport (Jesse Norman)]

Thank you, Sir David. It is a delight to serve under your chairmanship. If I may, I will start by congratulating my hon. Friend the Member for St Ives (Derek Thomas) on securing this very important debate on the safety of riders and horses on rural roads, a debate that has been dignified by some terrific contributions, albeit generally from one side of the House.

It is an honour to respond in my first Westminster Hall debate as the Minister with responsibility for roads and road safety. I do so as a rural MP who is extremely familiar with the issues from first-hand and constituency experience. I would also like to congratulate my hon. Friend on the e-debate, or online debate, that he has so successfully promoted. It has obviously proved to be an interesting and useful way to develop ideas, to share understanding and to promote awareness of these issues. I could not end the opening section of my remarks without congratulating the hon. Member for Lancaster and Fleetwood (Cat Smith) on taking her position on the Opposition Front Bench. It is testimony to her colleagues’ belief in her skills and abilities that none of them has seen fit or found it necessary to attend the debate themselves.

As my hon. Friend the Member for St Ives said, this is a very important issue, but that is not merely because horses and equestrianism have an important role in local communities across the whole of the United Kingdom; nor is it because of the huge benefits of health and leisure and the sheer joy that come from riding. If I may, I will quote a somewhat unusual source in this area, Ronald Reagan, who once said that no problem does not look better from the saddle of a horse. I think that many people in the Chamber would share that view.

This debate is important because of the impact of accidents and fatalities in horse-related incidents on human lives. We need all road users to feel, and to be, safe on our roads. This country has a very strong safety record overall on roads—indeed, our roads are among the safest in the world—but we must not and will not be complacent in any sense.

It is important to flag up that there were 1,730 reported road deaths in 2015, which is the most recent year for which data are available. While this represents a 45% reduction compared with a decade ago, it still represents many wasted lives and shattered families.

A question has been raised by implication in this debate about numbers and statistics. I want to put that front and centre of the discussion, before I go on to talk about some of the ways in which we are trying to improve the situation. According to police statistics, there were no recorded incidents of horse rider fatalities during 2015. There were, however, 17 serious casualties and 77 slight casualties. Those numbers had fallen by something like a third over the previous 15 years. I recognise that these numbers do not by any means tally with the numbers reported to the British Horse Society or, indeed, the numbers quoted by colleagues here today. I start by saying that I absolutely welcome the potential for co-operation between the BHS and our own statisticians in the Department for Transport. I offer them for the purposes of establishing a set of accepted, worthwhile statistics from which we can all calibrate and understand the problem.

However one thinks of the number, it represents only a fraction of total casualties on our roads, but each one of those is enormously distressing to those involved. The Government remain very keen to support the safety and wellbeing on our roads of riders and horses alike.

I am aware that my hon. Friend the Member for St Ives, in his indefatigable way, had a meeting in February 2016 with my predecessor, my hon. Friend the Member for Harrogate and Knaresborough (Andrew Jones), to discuss these issues. Following that, the Department, through the “THINK! road safety” campaign, worked directly with the British Horse Society to support its own “Dead Slow” campaign, to encourage car drivers to pass horses safely. The Department was able to reinforce the BHS campaign by developing a short film that is being promoted as a public information film on UK TV stations. I have encouraged the society to tweet that tomorrow, and I would encourage all Members to re-tweet that, as I will, as a small demonstration of the importance of these issues and the personal care and attention that we feel for them.

The Department has also invested in promoting the film on YouTube and other social media, such as Twitter and Facebook. Leaflets and posters to support the campaign further reminded motorists of the need to be patient when they encounter horses on the road and supplemented the advice already given in the Highway Code.

The leaflets and posters are available free of charge from the THINK! online shop and are often used by riding groups to support local campaigns. Road safety officers around the country have also been encouraged to feature the campaign locally. To some extent, therefore, there is already a national campaign, in embryo at least, but I have no doubt more can done. Officials in my Department have worked with the BHS on its “Ride Safe” book, which is endorsed with the THINK! logo. There is a great deal of co-operation already.

I am aware of requests, and we have discussed them today, that the Government prescribe speed limits and minimum distances when drivers are passing horses. There are different concerns here. One is that it would be difficult to enforce and impractical in some circumstances, where roads are very narrow. Road speed limits are in many cases local matters and are locally configured. Judging from Herefordshire, frankly, there is a serious issue, which is the extraordinary slowness with which local authorities bring in changes to speed limits. That is something that my Department can properly look at, but it is important to be aware that even bringing in speed limits—the same is true for national speed limits—may not necessarily be safe in all circumstances. We do not want to make our roads less safe by producing a one-size-fits-all solution, but we do need to improve local take-up and local impact.

It is important to note that where people are reckless around horses, there are already laws in place that make them liable for prosecution. The offences include driving dangerously, driving without due care and attention, and driving without reasonable consideration for other road users, as set out in rule 144 of The Highway Code. However, I recognise that there may be other steps that we can take. One that has just been suggested is the idea that we can supplement The Highway Code with further material such as images of horses to promote a greater understanding of their presence on the road.

The Department’s focus has been to raise awareness of the issues and to provide advice to all road users. Last autumn we ran a “Country Roads” campaign, which encouraged drivers to anticipate the hazards—anticipation has been raised by colleagues across the House today—and reduce their speed into bends. Some 59% of all road fatalities occur on country roads, and the number of people killed on country roads is nearly 10 times higher than on motorways. We have already heard about sharp bends, hidden dips, blind summits and concealed entrances—all of which can conceal potential hazards, leaving drivers little time to react if they are driving too quickly.

As well as targeted campaigns, the Department also endeavours to protect vulnerable road users through other channels. The driving theory test contains questions about how drivers should interact with vulnerable road users, including horse riders. The hazard perception test uses on-road video clips shown from a driver’s perspective. Learner drivers are required to successfully identify developing hazards. The current test includes a number of clips where horse riders are the hazard to be identified, either directly or indirectly. The clips are refreshed and updated periodically, and the move to computer-generated imagery may mean that we are able to incorporate situations that would otherwise be too difficult to film.

In relation to the driving test, the Driver and Vehicle Standards Agency has recently concluded a two-year trial, which aims to make the practical driving test much more reflective of a real-life driving journey, and a revised test will be in place from December. Changes include increasing the duration of the independent driving section from 10 to 20 minutes, and following directions from a satnav instead of an examiner. One of the aims of the changes, which I am sure colleagues will welcome, is to open up test routes and make sure that candidates can be assessed effectively in more natural or higher-risk situations, including driving on national speed limit roads.

Rules for all road users are set out in The Highway Code. As well as advice specific to horse riders, there are rules and advice for other road users when passing horse riders and horse-drawn vehicles.

Wider efforts are also in place to improve road safety. Many things combine to create safe and responsible roads users. As has been noted, young and novice drivers are at the highest risk of being involved in a road collision. That is why the Department has recently invested £2 million in the design phase of a research programme to identify the best technological and behavioural interventions for learner and novice drivers, and has awarded funding via the Innovation Challenge Fund to develop new hazard perception training.

I could dwell on changes that have been made to increase penalties for mobile phone use and many other initiatives, but let me just say in closing that I think the debate has been dignified by a large number of important and interesting changes. One I would like to touch on is the importance of effective policing. This can be done at several levels, and I would encourage all colleagues to raise the issue with their police and crime commissioners locally. I am delighted that the national roads lead for policing is Anthony Bangham, chief constable of West Mercia, my own police authority, and also a very near neighbour of mine in Herefordshire. I assure the House that I will be raising the issues personally with him.

I close by congratulating my hon. Friend the Member for St Ives on securing this debate and by reassuring him of the Department’s commitment to improving road safety for all users, including our most vulnerable.