Scottish Government

CHAPTER SEVEN: EXPLORING ACTIONS TO REDUCE RURAL ROAD ACCIDENTS

7.1 A key aim of this research was to provide advice to Road Safety Scotland on future communication strategies on rural road safety, including future target audiences, terminology to describe rural roads for future campaigns and campaign strategies. The segmentation of rural road drivers, depending on speeding behaviours ( Chapter Five) and attitudes to rural driving ( Chapter Six), highlights different groups which could be targeted by campaigns. In particular, future campaigns could focus on 'Excessives' (drivers who routinely exceed the speed limit by more than 10mph) and 'Risk Takers'. Other key audiences include young drivers and men.

7.2 A significant element of the qualitative phase (focus groups with younger male drivers) was devoted to exploring potential future strategies for reducing the incidence of fatal crashes on rural roads. This included both media campaigns and other actions, such as driver training and testing, and legal restrictions. Findings from the focus groups in this respect are presented below.

Communications development

7.3 At the outset, it was important to establish the appropriate terminology for referring to the types of road and driving in question, to ensure that the target audience relates to the subject matter as potentially personally relevant. A question of interest was how drivers describe these roads themselves.

7.4 When asked to categorise 'roads outside cities and towns, excluding motorways and dual-carriageways', focus groups were in general agreement on rural or country roads as applicable and appropriate to any single-carriageway roads through the countryside. While back roads is commonly used, this more often referred to the network of smaller roads, as opposed to main thoroughfares. As such, this was too narrow in its associations for use in communications. Similarly, open roads was regarded as misleading in its connotations in this context. Whereas rural or country roads were characterised as closed in on both sides and with numerous bends, the perception of open roads was of long, wide straights with little traffic, which could be driven at speed.

7.5 Another aim of the qualitative research was to inform future communications development by identifying potential themes or messages which might resonate more strongly with younger drivers and make younger males think more about their driving behaviour on rural roads. This was achieved by presenting a series of statements to the focus groups relating to rural road driving and obtaining a response to each in respect of perceived communication, relevance and impact - what it was saying, whether this was meaningful or not, and whether it made any impression. Statements have been grouped together here into themes relating to the approach or subject matter.

7.6Firstly, statements including statistics of various kinds were explored:

• '7 out of 10 fatalities are on the open road'
• '1 in 3 of all car crash victims are under 25 years'
• 'For young drivers, having 2 passengers in the car almost doubles the danger of a fatal crash and 3 passengers trebles the risk of death'

7.7 While the intent to shock through the use of alarming figures was recognised, the statements failed in their purpose and had very little impact on this audience. They were simply seen to be stating the facts and describing circumstances with which most respondents were familiar - that there are more serious and fatal crashes on rural roads, often involving young drivers with passengers in the car. This was not news to the younger men and was received in a very matter-of-fact way ('so what?'). Relating to respondents' high levels of confidence in their own driving ability, as discussed above, there was little concern that they might personally become one of these statistics. The tendency was to disassociate from, rather than relate to, this message. Statistics were seen to be about other people, and nothing to do with 'me' personally. The more cynical even challenged the figures on the grounds that the majority of car crash victims were over 25, or that the multiplier effect of passengers was too simplistic and not founded on fact.

'Doesn't mean an awful lot to me (7 out of 10…). It doesn't give you any real figures. I would expect there to be more fatalities on the open road.' (21-25, BC1)

'That's (7 out of 10...) not a surprise. You see it on the news every day…It's always youngsters.' (17-21, C2D)

'Just someone else trying to scare you (7 out of 10...). They put too many of them out nowadays…I wouldn't take it in, to be honest.' (17-21, C1C2)

'You just accept it (1 in 3...). Just one of these things.' (21-25, C2D)

'That's 2 out of 3 25-50 year-olds crashing, so they've got worse statistics than us.' (17-21, C1C2)

7.8Another group of statements could be described as situational statements:

• 'Younger drivers have a higher proportion of their accidents on unlit roads in the dark and are more likely to have passengers'
• 'Drivers over 25 years are more likely to have fatal crashes during the day, on clear roads with good weather conditions'.

7.9 Reactions to these statements were very similar to the reactions to the statistics, in that respondents perceived they were stating known facts and had no learning or relevance on a personal level. The situation described in relation to younger drivers was widely recognised. Going out driving in the evening with friends as a social activity was what they did, and this was not likely to change because others had accidents while doing so.

'That's a fact…The only time you've got to go out with your mates is at night, and it will be dark.' (17-21, C2D)

'You do see a lot at Inverurie at nights…a lot of folk going about, and obviously it happens. Everyone would agree with that, but no-one says much about it.' (21-25, C2D)

'I don't think it actually spells anything out for me and makes me wake up… I think I could guess that on my own.' (17-21, C1C2)

7.10 The statement describing the situation of drivers aged over 25 was less obvious and more surprising to some respondents, but could equally be rationalised on the basis of over-confidence through experience, driving alone and 'pushing it'. It was the fact that these statements were true and explicable which neutralised them in respect of impact and effect. They contained no surprises and gave no particular reason to take note or reconsider one's own driving approach.

7.11The third group of statements were speed-related statements

• 'You don't need to be speeding to lose control on a rural road'
• 'Loss of control, because of inappropriate speed, is the biggest killer on rural roads'
• 'Driving too fast for the road conditions is the biggest cause of death on Scotland's roads'

7.12 There was stronger appeal in all three statements relating to speed, from the point of view of communicating the message and style of expression. The focus on what might be defined as 'safe' speed rather than on legal limits was generally appreciated. Indeed, speed limits were not mentioned at all. The emphasis was seen to be very much on safe driving rather than obeying the law. The references to speed - inappropriate speed or too fast for the conditions - were effective through removing any inference that the statements were referring to legal limits. This would not have been the case if they had simply mentioned speeding ( i.e. driving above the speed limit) without context. As such, these statements were regarded as practical rather than theoretical, reflecting the reality and true risk in rural road driving of not adapting to the situation.

7.13 In addition, by adopting a tone which was more informative and advisory, rather than lecturing and threatening, there was much greater receptivity to the propositions and their messages. It was felt that the audience would be more likely to listen and take note. There is guidance in this for the type of approach which is likely to be more effective in engaging the target audience (younger, male drivers) in communications. They may respond more to an 'adult-to-adult' rather than 'parent-to-child' style transaction.

'The ones with the statistics on them…7 out of 10…it's just like they're telling you…They're really saying 'don't do it'. I think you're less likely to take notice rather than someone just telling you a bit of information. Most of the ones to do with the road conditions at speed…just because it's telling you. It's making you more aware. It's not just telling you how likely you are to die.' (17-21, C1C2)

7.14 As far as the individual statements around speed were concerned, the impact of each tended to vary in relation to the form of expression. 'You don't need to be speeding to lose control...' emerged as the weakest. While valid, it was regarded as too open and non-specific in its message in relation to both speed and the causes of loss of control. In the extreme sense, respondents felt that it might imply that, if one could lose control at any speed on a rural road, such roads should be avoided altogether.

7.15 'Loss of control because of inappropriate speed…' was seen as more specific in directly linking loss of control to issues of speed and felt to be clearer in its communication. However, there were some concerns over how this was expressed. Firstly, against a background of strong self-belief in driving ability, there was a lack of personal identification with the proposition of loss of control. It implied driver error, which was not something that the respondents were willing to acknowledge they were susceptible to. This resulted in respondents being likely to disassociate from this proposition as not personally relevant. As with the statistic-related statements, they saw this as an issue which affected other people. Secondly, the terminology 'inappropriate' was acceptable in principle, in terms of its significance, but less so in practice. It was judged as both too formal and not forceful enough for some respondents.

"I don't think that's strong enough. That's the kind of word your teacher or your mum would have said…That's inappropriate behaviour'." (BC1, 21-25)

7.16 While the message remained essentially the same in the statement 'Driving too fast for the road conditions…', the form of expression was seen as much more down-to-earth and explicit from the audience point of view. It was straight to the point and, because of this, was very positively received. There could be no confusion over its intent in the language used. Other strengths or attractions lay in the fact that, firstly, it did not directly challenge the driver's ability. It emphasised judgement rather than control and, tonally, this tended to be favourably received, being seen more as information and advice rather than criticism. Secondly, it conformed to respondents' own perceptions of risk being more likely to arise from external factors. ' For the road conditions' could apply to weather, road surface, pot holes and even other traffic.

7.17 The fact that the statement described circumstances with which respondents could identify strengthened its impact and relevance, rather than leading to rejection on the grounds of 'we know that already'. The difference in this case was that, while they might be aware of this information, it was not something of which they were necessarily conscious in their driving approach. The proposition brought the possibility of road conditions that might influence the appropriate driving speed more to the front-of-mind as an issue to consider.

'Driving conditions, that's something you don't really think about when you first start driving.' (21-25, C2D)

'You can feel like you can control your car…but black ice, if you're not expecting it…a big puddle round the corner, if you're not expecting it.' (21-25, C2D)

'I like the sound of it, because it's making you be a wee bit responsible for yourself, because it says too fast…So you can still drive fast, but if you're driving too fast for the road conditions…' (17-21, C1C2)

'I think it makes you think about what else is going on and not just you. You might be going round the corner fine, but there could be a bit of ice or snow, or just wet…' (17-21, C1C2)

7.18 The final proposition was: 'Rural roads need to be driven with extra care…'. Although this statement is not specifically speed-related, it is worth considering because it serves to highlight the strength of 'Driving too fast for the road conditions…'. The former statement came across as worthy, but simply stating the obvious, and very bland as a result. There was nothing specific to take from it that was meaningful or relevant on a personal level, unlike the latter statement.

7.19 In conclusion, as a proposition 'Driving too fast for the road conditions is the biggest cause of death on Scotland's roads' clearly had the greatest potential for development as a means of encouraging drivers to think more about their driving behaviour.

Other future actions

7.20 From reactions to the statistics-based propositions (see section 6.47) and the attitude statements reported earlier, it was apparent that respondents were generally aware of the issue of higher accident rates on rural roads and the involvement of younger drivers. The final discussion section in the focus groups sought to explore the views of younger drivers on why this is the case and what actions might be taken to remedy the situation. This included a review of a number of practical measures or legal restrictions which could be introduced. Practical measures discussed included:

• Extending the driving test to include driving on rural roads
• Offering cheaper post-test training such as Pass Plus

7.21 From the younger driver perspective, the main problems on rural roads were thought to stem primarily from a lack of adequate training and experience prior to drivers being permitted to drive alone. Driver training was thought to be largely aligned to meeting the requirements of the test and was perceived to have a much greater emphasis on the urban context. For example, the test was seen to be more concerned with vehicle manoeuvres such as reversing round corners, than control at speed on bends.

7.22 It was widely recognised that, on account of higher speeds and road configurations, rural road driving does require additional skills compared to urban driving, in respect of vehicle control, ability to read the road and to make judgements. Yet it was felt that there was little acknowledgement of the need for these additional skills in the current training and testing regime. With urban training, a learner might never drive above 40mph, only to be allowed to drive unaccompanied at 60mph on twisting country roads immediately after passing the test. It was little surprise that lack of training and experience in such situations resulted in errors in judgement and car handling, and in fatal crashes.

'I didn't find that…you got the driving test, you got any experience of car control or anything like that, which is what you need when you're driving a country road…if you're going quickly on a country road anyway. …You get taught to change gears and reverse, but it's not proper driving.' (21-25, C2D)

'I learned to drive in the summer. I passed my test in the summer and, when it came to the winter, I was screwed. I was driving in the country as well, and I didn't have a clue what to do.' (25-34, C1C2)

'You'd probably need to teach them the basics about how you drive…They'd be better taking learners out across a lot of the back roads just for experience…Teach them how to drive rather than how to pass their test.' (17-21, C2D)

7.23 As signalled by the final comment, there was strong support for extending driver training to incorporate car handling in different conditions and beyond standard urban streets; and to reflect this in a tougher driving test, either in one or two phases. Since the accident rate was more often a consequence of driver error than attitude, this rate was unlikely to improve without steps being taken to improve the level of driving ability and skill among younger drivers before they take to the roads.

7.24 The Pass Plus scheme ²⁶ was mentioned spontaneously in all groups, with a number of people actually having participated in it, indicating awareness of its existence. This was especially so among the younger respondents, as driving test examiners mentioned it to new drivers at the point of passing their test. In the focus groups, there was general endorsement of the scheme in principle, insofar as it encouraged further training in different driving conditions not covered by the test, in return for the incentive of lower insurance. However, there was less conviction about its effectiveness in practice in meeting the training needs identified. While some of those who had taken up the training had found it very beneficial, for others the experience had failed to deliver either in the additional experience gained, or financially in insurance savings, when offset against the cost.

7.25 There were several perceived flaws in how Pass Plus operated at present. The main criticism was that the scheme was entirely voluntary, with no requirement to take part. It was felt that those who undertook Pass Plus were likely to be the more responsible drivers anyway, whereas those who would benefit the most might be more inclined to reject it as a waste of time and money.

7.26 Related to this was a criticism of the current cost (around £150), which was a significant additional investment for many on top of driving instruction and the test fee. This had certainly been a disincentive for some respondents, particularly when the saving on insurance had only covered the cost of the course, with no net gain. A proposal to reduce the cost to £15 was seen as likely to make the scheme more attractive, but, even then, it was felt that many would resist the prospect of further training if it was not essential. The Pass Plus scheme's perceived worth was further devalued by the absence of any formal testing on completion of the course. For any scheme of this type to be effective, it was strongly felt that it needed to be compulsory, as part of the driving qualification process.

'It's rubbish…The amount I was saving was the amount it cost to do Pass Plus. Plus all you had to do was pay the guy. You didn't even need to take it. He'd just pass me, that's what he said…but I never took it anyway.' (21-25, BC1)

'I did it. I just thought it was a bit of a joke. All you're doing is driving around and they ask the questions…The best thing about it is the cheaper insurance.' (21-25, C2D)

'They should make it compulsory. You've got to learn to drive, then you've got to do your Pass Plus and be competent with it.' (17-21, C1C2)

7.27 A number of legal measures could also be introduced to address some of the circumstances believed to contribute to incidents involving younger and inexperienced drivers on rural roads. By placing some restrictions on when and how younger drivers can use their car, relative to peak crash situations, this might reduce the number of fatalities. Several of these options were put to respondents for their views. These included:

• Raising the legal age for taking the driving test to 18
• Banning driving for 18-25s between 11pm and 6am
• Restricting the numbers of passengers allowed to travel with newly qualified drivers
• Lowering the speed limit for rural roads

7.28 There was thought to be little to be gained from increasing the legal age for taking the driving test to 18 years old. The problem was thought to be one of experience rather than age or maturity, and delaying the test until drivers were 18 would not make any difference in this respect. Respondents felt that new drivers would remain inexperienced and the age difference would be unlikely to have any effect at that life stage. Attitudes would remain the same, and the only outcome would be to shift the problem to a year later.

'It would certainly keep them off the road a bit longer but, at the end of the day, they're not building any experience in that time. They're just holding them back a bit longer till they get on the road, and then they'd probably be just the same.' (17-21, C2D)

'What difference is that from 17 to 18? It's all about inexperienced driving, and I think a year isn't going to make that much difference.' (17-21, C1C2)

7.29 Other options presented were a driving ban for 18-25s between 11pm and 6am, or a restriction on passengers that newly qualified drivers can carry, such as those aged between 10 and 20, or between the hours of 11pm and 6am. The intent behind these was recognised, in seeking to eliminate the prime crash situation of younger drivers on rural roads late at night with friends in the car who might encourage foolhardy driving. Of the two, the blanket ban on night-time driving was the more widely criticised as unnecessarily restrictive, both in the time period and the age range of up to 25 years. Of particular concern was the effect on employment for those who might work at nights or start early in the morning. If such a restriction were to be introduced, it might be more practical to make this time-based, such as for the first year after passing the test, to allow newer drivers to gain more experience through everyday driving. The same might also apply to any restriction on passengers, although there were fewer concerns over the wider inconvenience of this.

7.30 With both, however, there were significant doubts over how realistic these might be in terms of enforcement. With little presence of enforcement measures on rural roads as it is, it was questioned how likely it would be to find increased policing during the night to detect younger drivers with passengers in their car. It was noted that the more law-abiding who might observe such restrictions are not the cause of the problem and, without the threat of enforcement, those putting themselves most at risk in their driving at such times would probably continue to do so.

7.31 A similar response was received to the proposition of reducing the speed limit on rural roads. As observed earlier in the report, the speed limit was currently a secondary consideration for many younger drivers on rural roads, not least from the lack of perceived risk of detection when exceeding the limit. Lowering the limit to 50mph, therefore, would be unlikely to have any effect, unless accompanied by a significant increase in levels of enforcement, through either a much greater police presence or larger numbers of speed cameras on rural roads.

'The only thing that is going to stop people is fear of getting caught, but people speeding slightly on these roads are not being caught.' (21-25, C2D)

'If you're talking about this age group, they're already breaking half these things (driving regulations). They're not going to be bothered if it says 50mph.' (25-34, C1C2)

7.32 The final option assessed looked at the concept of more informative signage for bends, following the New Zealand example of giving advisory speeds to denote the severity of the bend. This was seen as a definite benefit on unfamiliar roads, in allowing a better assessment of suitable speed to be made and removing the risk of being caught out in taking a bend too fast. It would at least provide some guidance for more considered drivers, even if it might also serve as a challenge to some more irresponsible drivers, to see by how much they might exceed the recommended speed without mishap.

'For a road you don't know, I think that would maybe be a good idea. You never know what's around the corner, and it just gives you a general idea of what you should be doing' (21-25, BC1)

7.33 In the situation where many crashes on rural roads are caused by misjudgement, often relating to speed at bends, measures which remove some of the uncertainty and give guidance on how to drive more safely can be beneficial. The aim must be as far as possible to help, and not just tell, drivers to drive more safely on rural roads.

Key points:

Communications development

• Key audiences for future campaigns include young drivers and male drivers.

• Rural or country roads were seen as suitable terminology for the roads of interest.
• In the focus groups drivers tended to dismiss messages with accident statistics as personally irrelevant or misleading. Statements describing situations in which accidents occur were seen as 'old news' and personally irrelevant.
• Speed related statements were more appealing, particularly if they emphasised 'safe' speeds rather than legal limits. "Driving too fast for the road conditions is the biggest cause of death on Scotland's roads" was received most positively.

Future actions to address the accident rate on rural roads

• The focus groups felt there was a lack of adequate driver training. The Pass Plus scheme was criticised for its voluntary nature, high cost and lack of testing. There was support for extending driver training and to reflect this in a tougher test.
• There was little support for raising the legal age for taking a driving test to 18. It was felt that experience rather than age was the more important factor.
• There was little support for curfews for younger drivers or restrictions on the number of passengers that new drivers can carry. Doubts were expressed about the enforceability of both these options.