Written evidence from the Driving Standards Agency (DSA)

(SLC 028)

About DSA

1. DSA is an Executive Agency of the Department for Transport (DfT). Our principal responsibilities are:

• setting standards for drivers, riders and instructors
• driver education and the provision of learning resources
• registering and assuring standards of driving instructors
• conducting assessments of driver safety as computer based and practical tests.

2. DSA’s statutory duties are to:

• deliver theory and practical driving licence acquisition tests
• regulate the Compulsory Basic Training (CBT) scheme for learner moped and motorcycle riders
• maintain the register of Approved Driving Instructors (car)
• regulate the Driver Certificate of Professional Competence scheme for drivers of lorries, buses and coaches
• undertake the assessment and supervision of driving examiners employed by other organisations
• the operational responsibility for the delivery and assessment of dangerous goods training
• oversight of the Drink Drive Rehabilitation scheme.

3. We deliver around 1.6m theory tests through our contractor Pearson Vue and 1.7m practical driving tests.  We also regulate some 44,000 professional driving instructors and nearly 2,300 instructors delivering compulsory basic training for motorcyclists.  In response to the civil service reform plan DSA is merging with the Vehicle and Operator Services Agency (VOSA) to create a single agency. 

Training

4. DSA has produced National Standards that set out the skills, knowledge and understanding required to be a safe and responsible driver and rider.  This require all drivers and riders to be able to apply a safe, systematic routine to negotiate all types of junctions, roundabouts and crossings safely and responsibly. They also must know and understand rules that apply to train and tram crossings and this topic is also dealt with in element 3.1.3 - Negotiating all types of junctions, including roundabouts and all types of crossings. The National standards for Driving and Riding can be found on GOV.UK and at Annex E.

5. We also produce The National Driver/Rider Training Standard which set out the complimentary skills, knowledge and understanding required by professional driving and riding instructors training those preparing for their licence acquisition tests and those undergoing post-test training programmes.

The Official Highway Code and other Publications

6. The Official Highway Code (the Code) applies to England, Scotland and Wales. The Code sets out the essential rules of the road for all road users, both drivers and riders and more vulnerable road users such as pedestrians, cyclists, and horse riders. It is important that all road users are aware of the requirements of the Code. Advice for road users about level crossings is set out in rules 291 to 299 of the Code, which can be viewed on GOV.UK and at Annex A.

7. We have recently introduced a number of initiatives to increase the profile of the Code and encourage its dissemination amongst the general public. The Code is now available to the public for free on GOV.UK and as an iPhone app which can be searched by subject and includes quizzes on topics featured in the code including level crossings (see Annex B).

8. The Code is also now available through DSA’s social media channels and weekly email reminders. We use these channels to post regular updates about all the rules of the road, including those on level crossings. The Highway Code is followed by over 25,000 people on Twitter, over 16,500 people on Facebook, and over 23,700 people get our email reminders.  We have issued a number of alerts and updates specifically about level crossings in 2013 (see Annex C). Our campaign to introduce the Code via social media won a Prince Michael International Road Safety Award in 2012.  Currently there are no plans to carry out a wholesale revision of the content of the Code.
9. DSA produces a range of other publications, such as The Official DSA Guide to Driving: The Essential Skills, for drivers of all categories of vehicle, which are available in both printed and electronic formats.  These are designed as resources for both experienced and newly qualified drivers and riders and to provide advice on best practice in driving or riding technique, driver behaviour and road use. Advice on level crossings is provided in each publication.

10. DfT publish Know Your Traffic Signs which illustrates and explains the meaning of level crossing signs and signals. UK level crossings signs are based on the Vienna Convention on Road Signs and Signals 1968, which ensures consistent signing is used for level crossings across Europe.

11. Currently, the Rail Safety and Standards Board (RSSB) are conducting research to determine the types of signs, signals and markings that would be most effective in reducing road user errors at levelling crossings and whether improvements can be made. The final report on this research is expected in late 2014.

Theory Test for Licence Acquisition

12. The Driving Theory Test consists of a multiple-choice element and a moving image Hazard Perception Test (HPT). The multiple choice test question bank for car drivers and motorcyclists features a number of questions which deal with level crossings, specifically:

• signage for level crossings
• lights on approach
• lights continuing to flash
• level crossing with gates or barriers
• level crossing with no gates or barriers
• user operated level crossings
• open crossings
• St Andrew’s cross at level crossing without barrier
• if lights flash when already on crossing
• breakdowns

13. To ensure the test is sufficiently rigorous, and a candidate’s knowledge is effectively tested, the questions - which are asked at random - must cover a wide range of topics. As a result we cannot guarantee that every candidate will be asked specific questions about level crossings.  The nature of the test means that it is necessary for candidates to familiarise themselves with all aspects of driving and road use, including how to safely negotiate level crossings, before attempting their theory test. Within the multiple-choice element for bus and lorry drivers, additional questions about level crossings are included, particularly focusing on issues raised by the longer length of these vehicles.

14. We also introduced case studies into the multiple choice element of the theory test for car drivers and riders of motorcycles in 2009. This more rigorous style of testing was originally developed as part of the test for bus, and lorry drivers.  Candidates are given a scenario, describing a journey or part of a journey and must answer a question relating to it. Case studies are intended to make the theory test a more robust challenge for candidates. Questions relating to level crossings now appear in several of our theory test case studies (see Annex D). 

15. Again, the number of topics to be covered mean that not every candidate will deal with a case study on level crossings.  We would expect, however, that learner drivers prepare fully for their tests and are able to answer questions on any topic including those related to level crossings.

Hazard Perception Test for Licence Acquisition

16. HPT was introduced for all driving licence categories in 2002 and has proved a valuable addition to DSA’s testing regime. Research conducted by the Transport Research Laboratory found that candidates who performed better in the HPT went on to have significantly fewer accidents in their first months of driving.

17. During the HPT candidates are shown a series of 14 video clips on a computer screen, which depict everyday on-road scenes featuring moving hazards. Candidates must identify these hazards by clicking a mouse as they develop and when they require avoidance action.  Although considered for inclusion during the design stage, the current HPT does not feature level crossings as they are a static hazard. There were also concerns about safely filming developing hazards involving real level crossings.

18. We are now looking at the creation of HPT test items using computer generated imagery (CGI) as an alternative format for HPT. We have concluded that CGI HPTs are just as good as traditional video-based test at determining whether candidates are properly equipped to identify developing hazards at the appropriate time.  They also open up the potential to generate new clips without the need for filming.  We are initially recreating the current test items in CGI format and will consider what additional clips might be added during the next stage of the project.

Practical Test for Licence Acquisition

19. We understand the potential road safety benefits of driving test candidates experiencing as wide a variety of road and traffic conditions as possible during their test, which typically lasts for 30 minutes.  However, many of our approved driving test routes do not include level crossings as they are not present in the area.  We believe that the theory test (and potentially future CGI versions of HPT) offers a more appropriate way of assessing a candidate’s knowledge of issues surrounding level crossings.

20. We also encourage drivers to continue developing their driving skills throughout their driving careers either through structured training or studying the available learning materials mentioned above.

Sanctions and driver rehabilitation

21. Under section 36 of the Road Traffic Act 1988, it is an offence to disobey a red light at a level crossing. This is a fixed penalty notice offence and would result in a fine of £100 and 3 points being added to a driving license.

22. Depending on the individual circumstances, a person might also face charges of either careless or dangerous driving. The maximum penalty for careless driving is a fine of up to £5,000, and for dangerous driving, it is two years imprisonment. Remedial training courses are a matter for the police and courts. We understand that a course to address careless driving has been developed and is being rolled out nationally.

Research

23. DfT has not published any research specifically on accidents at level crossings from the perspective of road users although we are aware that the rail part of DfT has provided a separate evidence briefing on this subject.  In 2008 DfT also produced a report Investigation into Traffic Delays at Level Crossings which does include materials on safety.  An extract is attached at Annex F.

Annex A

Transport Select Committee

Inquiry into Safety at Level Crossings 

The Highway Code on Level Crossings: rules 291 – 299

291. A level crossing is where a road crosses a railway or tramway line. Approach and cross it with care. Never drive onto a crossing until the road is clear on the other side and do not get too close to the car in front. Never stop or park on, or near, a crossing.

292. Overhead electric lines it is dangerous to touch overhead electric lines. You MUST obey the safe height warning road signs and you should not continue forward onto the railway if your vehicle touches any height barrier or bells. The clearance available is usually 5 metres (16 feet 6 inches) but may be lower. Laws RTA 1988 sect 36, TSRGD 2002 reg 17(5)

293. Controlled Crossings. Most crossings have traffic light signals with a steady amber light, twin flashing red stop lights (download ‘Light signals controlling traffic’ (PDF, 82KB) and ‘Traffic signs’ (PDF, 486KB)) and an audible alarm for pedestrians. They may have full, half or no barriers.

• You MUST always obey the flashing red stop lights.
• You MUST stop behind the white line across the road.
• Keep going if you have already crossed the white line when the amber light comes on.
• Do not reverse onto or over a controlled crossing.
• You MUST wait if a train goes by and the red lights continue to flash. This means another train will be passing soon.
• Only cross when the lights go off and barriers open.
• Never zigzag around half-barriers, they lower automatically because a train is approaching.
• At crossings where there are no barriers, a train is approaching when the lights show: Laws RTA 1988 sect 36 & TSRGD regs 10 & 40

294. Railway telephones. If you are driving a large or slow- moving vehicle, a long, low vehicle with a risk of grounding, or herding animals, a train could arrive before you are clear of the crossing. You MUST obey any sign instructing you to use the railway telephone to obtain permission to cross. You MUST also telephone when clear of the crossing if requested to do so: Laws RTA 1988 sect 36 & TSRGD regs 10 & 16(1)

295. Crossings without traffic lights. Vehicles should stop and wait at the barrier or gate when it begins to close and not cross until the barrier or gate opens.

296. User-operated gates or barriers. Some crossings have ‘Stop’ signs and small red and green lights. You MUST NOT cross when the red light is showing, only cross if the green light is on. If crossing with a vehicle, you should

• open the gates or barriers on both sides of the crossing
• check that the green light is still on and cross quickly
• close the gates or barriers when you are clear of the crossing: Laws RTA 1988 sect 36 & TSRGD regs 10 & 52(2)

297. If there are no lights, follow the procedure in Rule 295. Stop, look both ways and listen before you cross. If there is a railway telephone, always use it to contact the signal operator to make sure it is safe to cross. Inform the signal operator again when you are clear of the crossing.

298. Open crossings. These have no gates, barriers, attendant or traffic lights but will have a ‘Give Way’ sign. You should look both ways, listen and make sure there is no train coming before you cross.

299. Incidents and breakdowns. If your vehicle breaks down, or if you have an incident on a crossing you should

• get everyone out of the vehicle and clear of the crossing immediately
• use a railway telephone if available to tell the signal operator. Follow the instructions you are given
• move the vehicle clear of the crossing if there is time before a train arrives. If the alarm sounds, or the amber light comes on, leave the vehicle and get clear of the crossing immediately.

Annex B

Transport Select Committee

Inquiry into Safety at Level Crossings

iPhone app screenshot

Annex C

Transport Select Committee

Inquiry into Safety at Level Crossings

Examples of recently published updates about level crossings

Twitter:

You MUST NOT cross or pass a stop line on a level crossing when the red lights show, an alarm is sounding or barriers are being lowered.

16 August 2013.

Take extra care when driving close to/crossing tram tracks, especially in the wet, and when crossing rails on bends and at junctions.

30 July 2013.

At level crossings with user-operated barriers, you MUST NOT cross when the red light is showing, only cross if the green light is on.

14 May 2013.

DSA Direct:

All of rule 300 in an email alert about tramways.

26 June 2013.

Annex D

Transport Select Committee

Inquiry into Safety at Level Crossings

Theory test case study example

You are driving in the left-hand lane on a three-lane dual carriageway subject to the national speed limit.  It is a windy day and you are towing a small trailer which begins to snake. Ahead, in the centre lane, there is a slower moving motorcyclist that you intend to overtake.

You move into the center lane and the motorcyclist moves into the left-hand lane. 

After leaving the dual carriageway you approach a half barrier level crossing. Flashing red lights are showing. Two trains pass before the barrier goes up. Further along the road you stop in heavy traffic. The car behind runs into the back of you. The driver is displaying a help pennant. You are carrying a red warning triangle.

What should you do after seeing the first train pass?

Wait for the lights to go off and the barriers open

Look left, right, left, and proceeds if clear

Look right, left, right, and proceed if clear

Wait for the amber light and zigzag around the barriers

Annex E

Transport Select Committee

Inquiry into Safety at Level Crossings

Section 3.1.3 of the National Standard

Annex F

Transport Select Committee

Inquiry into Safety at Level Crossings

DfT Report Investigation into Traffic Delays at Level Crossings