How to make safety decisions - Wales urban 20mph
Posted: Tue Dec 05, 2023 10:19 am
A bit of an essay here from me, on a bugbear of mine.
A few weeks ago I was circulated an article written by a road safety expert, where he objects to the presentation of "sensible speed limits" as "war on motorists".
In particular, we are told that road travellers in Wales have suffered "trifling inconveniences" for the "safety benefits" of the near-blanket urban 20mph speed limit. He makes the fair point that it is often Other People who suffer a large part of the safety risk - he mentions pedestrians, but could also mention People in Other Vehicles - which those presenting the risk so aren't sufficiently careful about. We don't really know what the safety benefits are, aside from a reduction in road speed, because it will probably take a few years to work out with acceptable statistical precision what has been the impact of the policy on road casualties. At a regional level, road casualties are sufficiently infrequent and clustered you can't really see where they are going on a month to month basis, or from one year to the next, it takes a few years.
But I was really interested in this issue of "trifling inconveniences". Are they really "trifling"? How big are they? And how might they compare with the safety benefits. Sadly, but unfortunately typically, the author seemed to have made no attempt at quantification. And the government does gives us values to do this quantification. You can disagree with those values, but they are what we are told to use to assess expenditure and policy and decide whether it is value for money. So it is a good starting point. When I read this article, I thought I'd do a back-of-the-envelope, but I couldn't locate data even to make an educated guess. It turns out that other people were a bit upset about this lack of data too, and made a noise about it, that got into the news. And so, just over a week ago, the Welsh government published its calculations on the subject. Which now gives me enough for my envelope reverse.
So we see that the total journey time extension the Welsh Government projected as a result of these lower road speeds is 1.0 bn person minutes, spread across for 1.2 bn person-journeys. That takes account of the fact that there may be multiple people in some vehicles.
This information enables us to value the journey time extension using the DfT's TAG (Transport Analysis Guidance) traveller values of time, which are in the TAG data book. But to do that we need to split travellers by journey purpose, because we are only given values of time by journey purpose, not an average. Unfortunately I couldn’t find average Welsh work/commute/other road journey purpose proportions, so I used some typical English proportions (non-London) for this, rounded off. Those came from the 2022 National Travel Survey for England. So I came up with a value, using 2023 values of time from TAG of £110m. Clearly this is a bit rough, but probably within 10%. Now a curiosity of TAG is that everything is valued in 2010 pounds. I could put an inflation rate on that to bring it to 2023, but I decided it was simpler just to do all my analysis in 2010 pounds.
Is £110m “trifling”? We can compare it to the social cost of Welsh road casualties. In 2022, there were 95 deaths, 921 serious injuries, 3431 other injuries in Wales. We can use TAG casualty values, and other accident social costs that it quantifies, to value the total cost of casualties - including other accident costs such as damage to vehicles and road furniture and police costs - on Welsh roads. That came to £400m, again denominated in 2010 money. That’s the total.
Many people don't like doing this social cost/social value type of argument where the values include the values of death and injury. But the point is, we only have limited resources in our society, and we need to decide where best to place them. Only by consistently analysing in this way can we address our resources to the places where they present highest value.
So the policy takes £110m in value from people, to try and reduce a social cost which is currently £400m.
What kind of reduction might we get? Road casualties in Wales would have to reduce by about 29% to justify the extra travel time (I used the unrounded figures for that ratio). That’s large, so I wouldn’t call that a “trivial” travel extension for amount of potential safety benefit. Urban roads in GB more extensively are responsible for around 65% of casualties, but only about 35% of fatalities, (that comes from some info reported by the RAC Foundation) which are a material part of the total cost. So on average casualties have a lower seriousness in urban areas, so let's guess that the amount of social cost of road casualties in urban areas is roughly half of that £400m. So that £110m is something around half the total urban casualty social value. (I'm focusing on urban because the 20mph only changes speeds in urban areas.) This measure would have to be quite extraordinarily successful to deliver anything like that. In all likelihood, the social cost of this policy is considerably higher than the social benefit.
But there is an important cost of accidents that is missing from TAG, and that is the cost of disruption to other travellers that occurs when there is an accident. The actions in clearing up an accident reduce road capacity, and there is queuing and congestion. When there is a bad accident on a motorway - not relevant in this case - that closes the road for several hours, the congestion can be monstrous, but this is relatively uncommon. This is not taken account of in the values for the social cost of accidents reported in TAG. Taking account of it would increase the social cost of accidents. TAG has no evidence on this. On a quick search, I couldn't find any studies addressing it, which is a significant lacuna in the research into social costs of travel. I have long tended to think that accident costs are underrated because of the failure to take this into account, especially on the railway where accidents are usually much more disruptive than on the roads. Potentially taking this into account might in principle make a large difference. It depends what the disruption costs are, and how much accident reduction results. But my suspicion would be that urban road accidents have relatively low disruption costs in comparison to, say, motorway accidents. So in fact the disruption avoided by a measure that focuses on minor urban roads might be small, and so the difference might not be large. But really this is something we need better evidence on.
A difficult argument. But to use “trifling” without any attempt at quantification is a logical fallacy, proof by assertion if you like. Such a word requires justification, and the road safety expert made no attempt to justify it. Unfortunately, failure to consider carefully the proportionality of measures to increase safety is a widespread failing in this country. We spend a disproportionate amount of money and time on relatively small gains in safety, while failing to address the difficult stuff. It means that our public expenditure is badly distorted. Other expenditure that could increase safety and people's health is reduced, while we fiddle around with small things that are simpler to address, but not worth the candle.
Now I'm not saying that 20mph speed limits in towns are always inappropriate, far from it, rather I'm saying this blanket approach is disproportionate. Norway has the best road safety record in the world - despite relatively high proportions of the kind of roads that present more accidents. What we see there is much more graduated use of lower speed limits in towns. There are 30kmh areas right in the town centre, generally enforced with speed bumps, but more graduated speed limits as you move away from the very centre. Of course it helps to use km so that 40kmh is a commonly used speed limit, presenting graduation between 20mph and 30mph, in this country where you never see 25mph. The Norwegian approach, in a country with a very high quality of life, seems much more proportionate to me.
A few weeks ago I was circulated an article written by a road safety expert, where he objects to the presentation of "sensible speed limits" as "war on motorists".
In particular, we are told that road travellers in Wales have suffered "trifling inconveniences" for the "safety benefits" of the near-blanket urban 20mph speed limit. He makes the fair point that it is often Other People who suffer a large part of the safety risk - he mentions pedestrians, but could also mention People in Other Vehicles - which those presenting the risk so aren't sufficiently careful about. We don't really know what the safety benefits are, aside from a reduction in road speed, because it will probably take a few years to work out with acceptable statistical precision what has been the impact of the policy on road casualties. At a regional level, road casualties are sufficiently infrequent and clustered you can't really see where they are going on a month to month basis, or from one year to the next, it takes a few years.
But I was really interested in this issue of "trifling inconveniences". Are they really "trifling"? How big are they? And how might they compare with the safety benefits. Sadly, but unfortunately typically, the author seemed to have made no attempt at quantification. And the government does gives us values to do this quantification. You can disagree with those values, but they are what we are told to use to assess expenditure and policy and decide whether it is value for money. So it is a good starting point. When I read this article, I thought I'd do a back-of-the-envelope, but I couldn't locate data even to make an educated guess. It turns out that other people were a bit upset about this lack of data too, and made a noise about it, that got into the news. And so, just over a week ago, the Welsh government published its calculations on the subject. Which now gives me enough for my envelope reverse.
So we see that the total journey time extension the Welsh Government projected as a result of these lower road speeds is 1.0 bn person minutes, spread across for 1.2 bn person-journeys. That takes account of the fact that there may be multiple people in some vehicles.
This information enables us to value the journey time extension using the DfT's TAG (Transport Analysis Guidance) traveller values of time, which are in the TAG data book. But to do that we need to split travellers by journey purpose, because we are only given values of time by journey purpose, not an average. Unfortunately I couldn’t find average Welsh work/commute/other road journey purpose proportions, so I used some typical English proportions (non-London) for this, rounded off. Those came from the 2022 National Travel Survey for England. So I came up with a value, using 2023 values of time from TAG of £110m. Clearly this is a bit rough, but probably within 10%. Now a curiosity of TAG is that everything is valued in 2010 pounds. I could put an inflation rate on that to bring it to 2023, but I decided it was simpler just to do all my analysis in 2010 pounds.
Is £110m “trifling”? We can compare it to the social cost of Welsh road casualties. In 2022, there were 95 deaths, 921 serious injuries, 3431 other injuries in Wales. We can use TAG casualty values, and other accident social costs that it quantifies, to value the total cost of casualties - including other accident costs such as damage to vehicles and road furniture and police costs - on Welsh roads. That came to £400m, again denominated in 2010 money. That’s the total.
Many people don't like doing this social cost/social value type of argument where the values include the values of death and injury. But the point is, we only have limited resources in our society, and we need to decide where best to place them. Only by consistently analysing in this way can we address our resources to the places where they present highest value.
So the policy takes £110m in value from people, to try and reduce a social cost which is currently £400m.
What kind of reduction might we get? Road casualties in Wales would have to reduce by about 29% to justify the extra travel time (I used the unrounded figures for that ratio). That’s large, so I wouldn’t call that a “trivial” travel extension for amount of potential safety benefit. Urban roads in GB more extensively are responsible for around 65% of casualties, but only about 35% of fatalities, (that comes from some info reported by the RAC Foundation) which are a material part of the total cost. So on average casualties have a lower seriousness in urban areas, so let's guess that the amount of social cost of road casualties in urban areas is roughly half of that £400m. So that £110m is something around half the total urban casualty social value. (I'm focusing on urban because the 20mph only changes speeds in urban areas.) This measure would have to be quite extraordinarily successful to deliver anything like that. In all likelihood, the social cost of this policy is considerably higher than the social benefit.
But there is an important cost of accidents that is missing from TAG, and that is the cost of disruption to other travellers that occurs when there is an accident. The actions in clearing up an accident reduce road capacity, and there is queuing and congestion. When there is a bad accident on a motorway - not relevant in this case - that closes the road for several hours, the congestion can be monstrous, but this is relatively uncommon. This is not taken account of in the values for the social cost of accidents reported in TAG. Taking account of it would increase the social cost of accidents. TAG has no evidence on this. On a quick search, I couldn't find any studies addressing it, which is a significant lacuna in the research into social costs of travel. I have long tended to think that accident costs are underrated because of the failure to take this into account, especially on the railway where accidents are usually much more disruptive than on the roads. Potentially taking this into account might in principle make a large difference. It depends what the disruption costs are, and how much accident reduction results. But my suspicion would be that urban road accidents have relatively low disruption costs in comparison to, say, motorway accidents. So in fact the disruption avoided by a measure that focuses on minor urban roads might be small, and so the difference might not be large. But really this is something we need better evidence on.
A difficult argument. But to use “trifling” without any attempt at quantification is a logical fallacy, proof by assertion if you like. Such a word requires justification, and the road safety expert made no attempt to justify it. Unfortunately, failure to consider carefully the proportionality of measures to increase safety is a widespread failing in this country. We spend a disproportionate amount of money and time on relatively small gains in safety, while failing to address the difficult stuff. It means that our public expenditure is badly distorted. Other expenditure that could increase safety and people's health is reduced, while we fiddle around with small things that are simpler to address, but not worth the candle.
Now I'm not saying that 20mph speed limits in towns are always inappropriate, far from it, rather I'm saying this blanket approach is disproportionate. Norway has the best road safety record in the world - despite relatively high proportions of the kind of roads that present more accidents. What we see there is much more graduated use of lower speed limits in towns. There are 30kmh areas right in the town centre, generally enforced with speed bumps, but more graduated speed limits as you move away from the very centre. Of course it helps to use km so that 40kmh is a commonly used speed limit, presenting graduation between 20mph and 30mph, in this country where you never see 25mph. The Norwegian approach, in a country with a very high quality of life, seems much more proportionate to me.