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Extracts from the Report of the Advisory Group
on Motorcycling
Introduction
1. The Government's Advisory Group on Motorcycling was established
in May 1999 to assist the Government in refining its strategy on
motorcycling.
Background
2. The Government's White Paper on the Future of Transport, A New
Deal for Transport: Better For Everyone, recognised that mopeds
and motorcycles can provide an alternative means of transport for
many trips. It also acknowledged that where public transport is
limited and walking unrealistic, motorcycling can provide an affordable
alternative to the car. The motorcycle is the preferred form of
transport for some people, and can widen their employment opportunities.
Consequently the White Paper advised local authorities to take account
of the contribution motorcycling can make to integrated transport
and consider specific measures to assist motorcyclists.
3. The White Paper also acknowledged the potential
benefits that motorcycling offers for the environment and for congestion.
However it recognised that these were dependent on a number of factors
and that the role of motorcycling in an integrated transport policy
raises some important and complex issues, including safety and environmental
impact.
Motorcycling within an Integrated Transport System
4. The Government recognises that motorcycles have a role to play
in a national transport strategy.
5. In March last year, the Government published its
Local Transport Plan (LTP) guidance, Guidance on Full Local Transport
Plans. This stated that local authorities should take account of
the contribution motorcycles can make in delivering integrated transport
policies, for example where they are being used in congested traffic
conditions, and should consider specific measures to assist motorcyclists
in making integrated journeys.
6. The Government's 10-Year Plan for transport, published
last July, also recognised that motorcycles have a part to play
in an integrated transport policy. The Plan acknowledged the advantages
of motorcycles over cars in terms of flexibility and affordability.
It noted that motorcycles can make more efficient use of road space
in congested town centres and provide a cheaper alternative for
people on low incomes living in rural areas.
7. Also last year, as part of the its Energy Efficiency
Best Practice Programme, the Government published a travel plan
resource pack for employers. This, too, highlighted the potential
environmental benefits of motorcycles over cars and the space efficient
nature of motorcycles, particularly in terms of parking and congestion.
The advice noted that benefits to an organisation's employees could
include lower running costs and quicker travel than by car.
Road Safety Strategy
9. A significant issue for Government, which will be fundamental
to the conclusions reached on powered two wheeler strategy, is the
safety of motorcyclists. There has been a very welcome decrease
in the rate of casualties. In 1999 TWMV traffic rose by 16% compared
to 1998. However, there was a 9% decrease in the casualty rate per
100 million vehicle kilometres. That said, total casualties rose
by over 6%, and deaths among two-wheeled motor vehicle (TWMV) users
rose by 10%. motorcycles represent a large proportion of road casualties
in relation to their numbers and they remain our most vulnerable
road users.
10. We need to address this and guard against increased
casualties should congestion encourage car drivers to shift to motorcycles.
In March 2000 the Government published a Road Safety Strategy for
the next 10 years, Tomorrow's Roads - Safer for Everyone. This includes
road accident casualty reduction targets to be achieved by 2010.
These are a 40% reduction in the number of people killed or seriously
injured; a 50% reduction in the number of children killed or seriously
injured; and a 10% reduction in the slight casualty rate. Action
is required to deliver these targets. On motorcycling, the Strategy
includes measures to:
improve training and testing for all learner riders;
provide guidance for people returning to motorcycling after a
break, and people riding as part of their work;
ensure the quality of instruction;
help drivers become more aware of the vulnerability of motorcyclists;
and
promote improvements in engineering and technical standards which
could protect motorcyclists better, including new safety helmet
standards.
11. The Government is already taking action to deliver
the Strategy. Following consultation in 1999, the Government announced
plans to improve motorcycle safety by modernising training, testing
and licensing arrangements, at the same time as removing unnecessary
restrictions.
12. The regulations have ended the unpopular "2-years-on,
1-year-off" rule, under which learners could be excluded from
riding for a year if they did not pass a motorcycle test before
the end of the 2-year life of the licence. Instead, the new regime
will provide provisional entitlement until age 70, but the rider
must hold a current CBT certificate to be able to use the licence.
In conjunction with this, the Regulations reduce the life of a Compulsory
Basic Training (CBT) certificate from 3 to 2 years. The Government
believes that the requirement to renew a CBT certificate is a more
appropriate response than a ban for those not passing a test within
2 years, and that this provides a sensible balance between providing
learners with an incentive not to delay reaching test standard,
whilst giving a reasonable period to accommodate individual circumstances.
13. Also, the Government believes that riding a moped
safely involves very different skills from driving a car safely.
Therefore car drivers qualifying after 1 February 2001 will be required
to complete a CBT course before using their moped entitlement to
ride on the road. This change will ensure that car drivers receive
appropriate training before taking to two wheels.
14. Car and motorcycle theory tests are now distinct
in terms of content. The motorcycle test now better meets the needs
of learner riders than when the test was introduced in 1996. To
ensure learners obtain the benefit of these tests, the Regulations
provide that exemption from the motorcycle theory test for full
car licence holders, and vice versa, is ended.
15. A number of other measures are being taken forward
in furtherance of safer motorcycling. The Driving Standards Agency
(DSA) is working on improving pre-test rider training, based on
a range of competencies to be achieved, supported by training logbooks.
To complement this DSA will be improving the standards of motorcycle
instructors, which will be supported by a voluntary register of
accredited motorcycle instructors. In the longer term the Government
wants to make this a statutory register.
16. DSA will also be developing guidance for full
motorcycle licence holders returning to motorcycling. The issues
will be different depending on whether the rider is newly qualified
or returning to motorcycling after a break. DSA is working with
trainers, riders, retailers, manufacturers and insurers to develop
standards, publicise schemes and encourage participation.
CHANGES TO THE MOTORCYCLE TEST
20. Hazard perception is the ability of a driver to
identify situations, at the earliest possible opportunity, that
might require them as a rider or driver to take some form of avoiding
action, such as changing speed or direction. This involves techniques
such as scanning, selecting a safe separation distance, using an
appropriate speed, planning well ahead, and having good anticipation.
DSA will be introducing hazard perception testing for all test candidates
during the autumn of 2002.
21. The Second European Council Directive on driving
licences sets minimum requirements for driving tests conducted by
Member States. The European Commission recently published a revised
Second Directive which prescribes more features for practical tests.
The intention is to ensure that tests provide a more thorough assessment
of knowledge, understanding and skills relating to the type of vehicle
that the licence applicant wishes to drive.
22. The revisions will require significant changes
to the GB practical test for motorcyclists. Candidates will have
to undertake:
Checks of the emergency stop switch (if applicable), chain, and
oil levels.
At least two manoeuvres executed at slow speed, including a slalom.
At least two manoeuvres executed at higher speed, of which one
manoeuvre should be in second or third gear, at a speed of at
least 30 km/h and one manoeuvre avoiding an obstacle at a minimum
speed of 50 km/h.
At least two braking exercises, including an emergency brake at
a minimum speed of 50 km/h.
23. The Directive allows Member States up to 3 years to implement
the changes to the random checks, and 5 years for the new manoeuvres.
DSA has issued a discussion paper inviting views by the end of
April on the proposed approach to implementation in GB.
ROAD MAINTENANCE
24. In November, the Government announced funding
for the first two years of the 10-Year Plan to tackle the backlogs
in local authority highway maintenance. Over £1 billion will
be provided in the next two years through the Local Transport Plan
settlement. This represents double the money available in 2000/01
and will help to eliminate the potholes and bad surfacing that cause
so many problems to motorcyclists, and other road users. The LTP
Guidance on Full Local Transport Plans, advises local authorities
to consider the implications for motorcycles in deciding how to
remedy deficiencies in the road surface. Furthermore, the Government
is developing a revised Code of Good Practice for local road maintenance
with the Local Government Association which should be ready before
the end of 2001.
DARK VISORS
25. There have been calls from some motorcyclists
for the law to be changed to allow darker tints for helmet visors.
In order to take the issue forward, DETR commissioned new research
last year on the safety aspects related to drivers' and motorcyclists'
vision. Among other things, this is looking at the benefits and
disadvantages of visors with dark tints. This work is still continuing
and it is anticipated that the report will be publicly available
later this year. At this stage the Government remains open-minded
about the possibility of amending the regulations to allow a darker
tint for visors but, at the end of the day, must ensure that any
changes to the law will not compromise efforts to improve road safety.
DIESEL SPILLAGE
26. The EC Fuel Tank Directive was amended in March
2000 with new measures aimed at reducing fuel spillage. It provides
that the tank cap must be fixed to the filler pipe, the seal must
be retained securely in place, and the cap must latch securely in
place against the seal and filler pipe when closed. The UK will
of course be implementing all the mandatory requirements of this
Directive, which must be by 3 May 2002 for new car types and from
3 May 2003 for all new cars. At a date to be decided DETR will be
consulting on the implementation of similar requirements for HGVs.
The Government will also be considering the extent to which any
optional provisions will enhance our current national Construction
and Use requirements. European emissions Directives are also introducing
requirements for new vehicles that will minimise evaporative emissions
and fuel spillage caused by a missing fuel filler cap. Whilst these
Directives do not apply retrospectively, a gradual but nonetheless
noticeable decline in fuel spillage should result from this.
27. In respect of existing vehicles, there are current
legislative measures contained within the Road Vehicles (Construction
and Use) Regulations 1986, as amended, aimed at preventing diesel
spillage from taking place. These measures are contained in Regulation
39 and stipulate that fuel tanks must be constructed and maintained
in such a manner that neither liquid nor vapour can escape from
them. Also Regulation 61 prohibits spillage of any oily substance
onto the carriageway if they are likely to result in danger being
caused to other road users. The maximum penalty on conviction is
currently a fine of £5,000 or disqualification.
The Task Forces
33. A research project is underway to look at the impact of motorcycle
use on congestion. It has been argued that if more trips were done
by motorcycle rather than by car there would be less congestion.
The reasoning is that motorcycles take up less road space, are able
to filter between stationary traffic and move off quickly at junctions,
and may thereby increase overall traffic throughput. Furthermore,
as they spend less time stationary with their engines idling, emissions
could be reduced.
34. The Department is keen to see proper monitoring and evaluation
of the effect of motorcycles in bus lanes. This is a practice that
has developed in a number of local authorities. There have been
concerns about the safety of other vulnerable road users if motorcycles
are able to use these lanes.
35. Discussions have started between cycling interests, motorcycle
interests and the Department about the possible use of advanced
stop lines by motorcycles as well as bicycles. Advance stop lines
have been provided by many authorities as a means of helping cyclists
to position themselves at the head of the queue at traffic lights,
and particularly to help right turning cyclists to manoeuvre themselves
to the correct position on the road.
38. Although not addressed by this Task Force, the Government believes
that powered two wheelers should generally be exempt from road user
charging and workplace parking schemes.
NOISE
46. Since the late 1980s, all motorcycles marketed in the UK have
been subject to an EC requirement under which the largest machines
are subject to a maximum noise output of 82dB(A). Under the EC's
type approval requirements, standards for new machines range from
66dB(A) for the smallest mopeds to 80dB(A) for motorcycles over
175cc.
47. In addition, comprehensive UK regulations have been in place
since 1995 that set strict controls on the sale and marking of silencers
and also on their use. These regulations make it an offence to sell,
to fit and to use a silencer for a motorcycle that is not appropriately
marked to show that it meets "as new" noise standards.
In addition they also require a silencer to be effectively maintained
so as to avoid excessive noise.
48. Despite these very comprehensive controls, motorcycle noise
is still a major cause for public complaint. It arises primarily,
if not totally, from the illegal sale and use of non-compliant silencers
on motorcycles. Enforcement and control of illegal silencers is
a matter for the police, but as the regulations are comprehensive,
and therefore complex, the Task Force has prepared a summary of
the requirements (Annex E) to aid better understanding by the enforcement
bodies at point-of-sale and on the road. Broadly, unless the motorcycle
was made prior to 1983, all motorcycle silencers sold for, and used
on the road should carry an approval mark, they must not be marked
"not for road use", and they should be in good and efficient
working order.
Powered two wheelers - fleet profile
1. The size of the national fleet has varied significantly over
the past 20 years. Estimates prepared by the Society of Motor Manufacturers
and Traders (SMMT) show that the number of motorcycles has varied
from 1.37m in 1980, to 0.94m in 1993 and 1.14m in 1998. Within these
figures, the motorcycle proportion has increased from 75% to 90%,
while the moped proportion has decreased from 30% to 10%. Annual
sales of motorcycles have similarly fluctuated over the past 20
years, varying from 315,000 in 1980, to 47,000 in 1993, and 120,000
in 1998.
2. Variations between various estimates of the size of the national
fleet prepared by different organisations should also be noted.
The above industry figures - indicating a national fleet of the
order of 1,000,000 - are in contrast to other statistics:
a)Government figures indicate a national fleet of 760,000 at the
end of 1999. However, this will exclude some seasonal vehicles that
are used and licensed for only part of the year; latest figures
of motorcycles licensed at the end of September 2000, indicate a
stock of nearly 890,000. These figures are however based on registered
vehicles in the motorcycles tax class. It is known that the VED
evasion rate among motorcycles is around 25%, and this would explain
much of the difference between the figures.
b)an EC research study published in 1999 and a figure of 800,000,
but this included motorcycles only, and excluded vehicles less than
50cc.
c)an earlier EC programme of studies - Auto-Oil II - used a figure
of 600,000.
The group is currently assuming a national fleet size of 1,000,000.
3. The age profile of the fleet is also an important consideration
for the estimation of emissions from motorcycles. Of the national
fleet, nearly 60% is seven or more years old.
4. The average annual distance travelled by motorcycles is also
a factor in calculating emissions from such vehicles. This is given
in Road Accidents Great Britain 1998 as 4000 million vehicle kilometres,
or approximately 4000km per vehicle.
More info can be obtained from the DOE site:
http://www.dft.gov.uk/stellent/groups/dft_rdsafety/documents/page/dft_rdsafety_030137.pdf
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