Cycling Safety

Peter Bone Excerpts

Wednesday 21st November 2012 Westminster Hall

[Alok Sharma]

I will talk about an independent report produced for the Department for Transport in 2009, which demonstrated that the use of cycling helmets absolutely makes a difference in reducing fatalities and injuries. Let me come on to that later.

[Mr Peter Bone (Wellingborough) (Con)]

Is not it absurd that Members of Parliament still pretend that wearing a cycle helmet increases the risk?

[Alok Sharma]

My hon. Friend, as ever, makes a good point. There is clear evidence that using a cycling helmet, whether as an adult or a child, reduces the risk of injury. I will talk about cycle helmets, but in this debate there is almost a gulf between those hon. Members who believe that cycle helmets should be made compulsory and others who do not. Organisations out there have similar or differing views, as well. My hon. Friend is right—it has been concluded in independent reports and reports produced by the Department—that wearing a cycle helmet makes a difference in terms of improving safety.

I was talking about the contribution that the Minister and the Department have made. He is also committed to supporting Bikeability cycle training for the remainder of this Parliament, which is welcome. I am pleased about that good news. However, I shall return to my central theme. All hon. Members who are supporters of cycling want cycling to be put at the very heart of transport policy. I hope that the Minister will tell us—apart from all the funding streams and all the work that is going on—how cycling will be, or is already, a central part of his Department’s policy.

Proper provision for cyclists on the road is not just something that cyclists want. Hon. Members will know that the AA recently undertook a survey of its members, and 62% of the 20,261 AA members who responded to it said that there are not enough cycle lanes. An increased number of cyclists on busy roads is leaving many motorists feeling insecure about how to interact with cyclists. The majority view is that clearly defined cycle lanes would be good news for both motorists and cyclists. That means a lot more than slapping down a few white lines intermittently along the pavement, as happens, unfortunately, in my home town of Reading.

Ahead of this debate the Mayor of London’s office was in touch with me—I am sure that it was in touch with other colleagues as well—setting out the Mayor’s commitment to making London even more of a cycling city. The aim of the Mayor’s cycling strategy is to increase cycling by 400% by 2026, from 2001 1evels. I understand that record levels of investment in cycling over the past four years have supported the cycling strategy, with investment levels now approaching those of other leading European cycling cities. A number of European cities have significantly higher per capita spending on cycling than we do in many of our cities. It will be interesting to hear the Department’s view on that, and on how the situation can be rectified. Alongside the Mayor’s flagship schemes of Barclays cycle hire, cycle superhighways and biking boroughs, a range of complementary activities has led to a 70% increase in cycling in the capital over the past four years. Many of our cities, towns and local authorities can learn from the example of London and, no doubt, Members will have other best practice from their own areas to share.

The second part of the debate relates to the wearing of cycle helmets, which can be a controversial subject, but I have no wish for a particularly emotional debate. We need to be dispassionate in discussion, and to debate on the basis of evidence rather than emotion. I asked for the debate today because I was prompted by a recent meeting with the Bicycle Helmet Initiative Trust, a national, award-winning charity based in Reading. The trust is committed to saving young people’s lives by promoting safer cycling and, in particular, the use of cycle helmets. The organisation was founded in 1988 by a paediatric nurse who, through her work, saw the devastation that head injury can cause, not only to the child but to the whole family. Since the charity’s conception, it has grown in drive and commitment to be an advocate for the child and young person. It also provides a community service by highlighting the need for safer cycling practices that incorporate the distinctive needs of children and young people. The charity is a national resource working with parents, teachers, police, road safety officers, Departments and health care professionals by promoting and providing educational programmes in schools on the need for helmet use and safer cycling practice throughout the United Kingdom.

The trust has worked successfully with the Department for Transport in the past and it recently submitted another proposal, for a project that aims to complement the Bikeability programme. It would engage with areas in need, which may not be part of training programmes due to social challenges, and work with young people to develop their understanding of road safety and self-safety. As part of its proposal, the trust wants to work in local communities to develop partnerships and to draw on local private sector organisations to provide safety packs to children who, because of the cost, might be without helmets, lights and reflector bands, or without access to training. I hope that the Minister will agree to meet representatives of the trust and me, so that we can explain to him in detail the objectives of the latest proposal, and that we will secure his personal support for the project.

The Bicycle Helmet Initiative Trust is absolutely committed in its advocacy for children and young people to wear cycle helmets. I very much share that view, and the statistics on serious injuries to cyclists bear out why wearing a cycle helmet is so important, especially for children. In 2011, just over 3,000 seriously injured road casualties involving pedal cyclists were recorded by police. In addition, almost 16,000 incidents of pedal cyclists being casualties in slight accidents were recorded. Of the 3,000 serious injuries, 349 casualties—or 12% of the total—were children aged nought to 15. However, according to NHS statistics, almost 9,000 emergency road traffic hospital admissions last year involved pedal cyclists, so there is a threefold understatement in police-recorded injuries compared with NHS admissions. One reason for that is that not every injury or incident takes place on a road—it can be off road, in particular for children, and I will focus on that as I progress. Furthermore, of the 9,000 emergency road traffic hospital admissions, more than 3,000 were of children aged nought to 15—35% of the total. The understatement in police-recorded injuries compared with NHS admissions for children in connection with cycling injuries was therefore tenfold. That demonstrates that, when children are involved in accidents, a lot of the time, they do not happen on the road or the highway, but off road. Children may be cycling with friends in the playground or in woods, and we must bear that clear distinction in mind when we discuss cycle helmet usage as potentially compulsory for children as opposed to adults.

--- Later in debate ---

[Mr Bone]

My hon. Friend is generous in giving way. I wanted to reinforce his point. According to emergency departments that see children, 90% receive injuries from non-vehicle-related accidents. We always hear, “Oh, it’s because you are going to be knocked over by a car”, but most accidents do not involve a vehicle and are cycling accidents alone.

[Alok Sharma]

I thank my hon. Friend for making that point and for reinforcing the fact that we are discussing wearing helmets not only on roads but off road.

We were discussing the understatement in police records compared with NHS records of injuries and why that could be. One of the key reasons, for children, is that many such injuries take place off road, as my hon. Friend has just pointed out. The total figure for cycle-related hospital admissions, however, includes only patients who occupy a bed. Those who attend A and E are not included in that 9,000. That, of course, does not include any gap between unreported and reported incidents involving only slight accidents, so the total number of cycle-related injuries receiving hospital treatment is likely to be much higher than any of the statistics that I outlined suggest. It is appropriate that the debate about cost includes not just the human and social cost, but the financial cost of cycling injuries and fatalities. We must look at the broader picture, and the larger figures.

Head injuries ranging from fatal skull fractures and brain damage to minor concussion and cuts are common in cyclists. I understand from the information published by the Royal Society for the Prevention of Accidents that hospital data show that an estimated 45% of child cyclists admitted to hospitals have suffered head injuries. That is a high percentage indeed. Undoubtedly, some of those injuries would have been reduced or may not have occurred if a cycle helmet had been worn.

A recent Transport Research Laboratory report, which was published in 2009 and commissioned by the Department for Transport, reached several conclusions about the efficacy of wearing cycle helmets. It concluded that helmets, assuming that they are a good fit and properly worn, are effective in reducing the risk of head injuries. They are expected to be effective in a range of accidents, particularly the most common accidents that do not involve a collision with another vehicle but, as my hon. Friend the Member for Wellingborough said, are falls or tumbles over handlebars.

The report concluded that a specialist biomechanical assessment of more than 100 police forensic cyclist fatality reports predicted that between 10% and 16% of fatalities could have been prevented if the cyclists had worn an appropriate helmet. Those who do not believe that we should have compulsory wearing of cycle helmets say that, at the end of the day, helmets will not save lives. It has been shown conclusively in an independent report produced by the Department that in some cases they do.

Most interestingly, the report concluded that cycle helmets would be particularly effective for children. I could go into the reasons for that, but I am sure the Minister, if he has time, will explain them. Yet a 2008 Transport Research Laboratory report, commissioned by the Department for Transport, estimated that only 18% of children and 35% of adults wear helmets on the road.

Apart from the terrible human and social cost of cycling fatalities and serious injuries, there is a financial cost to the country and to society. According to the Department for Transport’s own report, the total value of preventing reported road accidents in 2010 was estimated to be £15 billion. Let me put that in context. The entire transport budget for 2010-11 was just over £12 billion, and The Times manifesto calling for 2% of the Highways Agency’s budget to go towards cycle routes would amount to around £80 million. The average value of preventing every reported road accident was almost £1.8 million for a fatality, over £200,000 for a serious accident and over £20,000 for a slight accident.

One clear way of cutting down on the human, social and financial cost of cycling accidents, particularly those involving children, is through wearing cycle helmets. I am pleased that all hon. Members who have contributed to this debate so far agree. The time has come for the Government to consider very seriously the case for introducing the mandatory wearing of cycle helmets for children. I know that this is a controversial issue, and the right hon. Member for Exeter (Mr Bradshaw) shakes his head, so I presume that he does not agree.

The hon. Member for Dumfries and Galloway (Mr Brown) said that a private Member’s Bill in 2004 did not make progress, but it was supported by a wide range of organisations including the Royal College of Nursing, the Royal College of Paediatrics and Child Health, the safety charity Brake, the Child Accident Prevention Trust, the Child Brain Injury Trust, and the brain injury association Headway. Last year, the British Medical Association welcomed a Bill in the Northern Ireland Assembly to make wearing helmets compulsory, but unfortunately it did not make progress. The World Health Organisation has also stated that laws mandating helmet use can be effective in reducing road traffic accident injuries.

Many countries in Europe have laws on wearing cycle helmets, and we would not be the first to introduce such a law. In Europe, it is mandatory in Finland, where all cyclists are required to wear cycle helmets; in Spain, it is mandatory outside built-up areas; in the Czech Republic, it is mandatory for children under 16, in Iceland, for children under 15, in Sweden, for children under 15, and in 2010, it became mandatory in Austria for children under 10. Outside Europe, helmets are mandatory in Australia, New Zealand, 20 states of the USA and some Canadian provinces. We would not break new ground by at least considering the introduction of such a law.

Introducing a cycle helmet law will not suddenly solve the problem of road safety, and many hon. Members in previous debates have made that point. That is why I started this debate by talking about other measures that need to be introduced to make our roads safer. They include segregated and dedicated cycle paths and routes.

Returning to the point that my hon. Friend the Member for Wellingborough made, we can make our roads safer, but that may not reduce cycling injuries in children, because many of their injuries occur off road. The argument that we would drive people off the roads and discourage them from cycling does not hold water.

Wearing cycle helmets saves lives and reduces injuries, and even the most hardened opponents of cycle helmets acknowledge that. A key argument by anti-helmet campaigners is that making them compulsory will put people off cycling, will therefore not help in reducing carbon emissions and will discourage a healthier lifestyle. Some organisations have produced statistics showing that the mandatory wearing of helmets might save tens of lives, but that a reduction in the number people cycling would result in people perishing earlier than expected because of obesity. I am not sure that that is a serious contribution to the debate.

International evidence suggests that mandatory helmet wearing, particularly for children, does not result in a long-term drop in cycling. Some studies have concluded—one in Australia is often cited, but it was about 20 years ago—that introducing compulsory helmet wearing may result in a temporary decline, but that the medium to long-term effect is likely to be negligible. Other studies have concluded from experience in the States and elsewhere, particularly where laws were introduced only for child cyclists, that there has been no reduction in cycling following the introduction of such laws. International experience suggests that the wearing of helmets can be introduced successfully without resulting in a long-term decline in cycling.

Logically, a rule affecting only children should not discourage adult cyclists. The right hon. Member for Exeter has in previous debates made the point that the more people cycle on roads, the safer it will be. Children of five, six, seven, eight, nine or 10 are not part of a group that consistently cycles on roads, so introducing a cycle helmet law for them will not deter adults from cycling.

One thing that puts children off wearing cycle helmets, of course, is peer pressure, especially as they enter secondary school. It is not always considered cool to wear a helmet, but if we can change attitudes by introducing a law, so that it becomes the norm—almost second nature—to wear cycle helmets from a young age, that will stick with children in adolescence and adulthood. I have two young daughters; we go out cycling fairly often, and they were brought up wearing cycle helmets. I must admit that I do not always wear one, but when I cycle with my daughters, the peer pressure works the other way, and they absolutely insist that I wear a cycle helmet, too. If we can get children into a mindset whereby they think it is absolutely the norm to wear cycle helmets, we will see a change in attitudes, and they will wear cycle helmets into adolescence and adulthood. That change will mean that we see significantly fewer fatalities and injuries, not only on the roads, but off them.

The hon. Member for Huddersfield (Mr Sheerman), who has left his place, made a good point about wearing car seat belts. I was a teenager when the law was introduced, and wearing seat belts certainly was not the norm. I was not a particularly rebellious teenager, but I did not always follow the rules. However, after a few months, when everybody else is doing it, we do it too, and it absolutely becomes the norm. Thinking back, people will say, “Wasn’t it astonishing that people railed against the introduction of a law on seat belts?” If we get to the point where we can introduce a law making it compulsory for children to wear helmets, I hope we will look back after a few years and wonder what the fuss was all about.

The Department for Transport’s report concluded that wearing helmets is beneficial, especially for children. I am asking the Department to commission a definitive, independent report on the benefits and costs of introducing a law requiring children to wear a cycle helmet. In particular, I want it to look at whether such a law would deter cycling in the longer term and whether parents would support it. I am a parent; I cycle, and my children cycle. I am not part of any lobby or group. There are millions of people like me and my children, and they are the ones we should be listening to and whose views we should be getting, before we decide whether it is right to introduce such a law.

The Department could make a pretty easy start by introducing a few extra questions in the Sport England Active People survey. It could ask cyclists whether they regularly wear helmets or ask their children to wear helmets. It could ask them whether they would support a law making it mandatory for children to wear helmets.

The Horses (Protected Headgear for Young Riders) Act 1990 made it mandatory for young children riding a horse on the public highway to wear protective headgear. If such a law makes sense for young horse riders, surely it should make sense for children on bicycles. We are talking about a measure that will save lives, and prevent injuries and unnecessary cost. I look forward to the Minister’s response.

--- Later in debate ---

[Mr Peter Bone (Wellingborough) (Con)]

It is a great pleasure to follow the right hon. Member for Exeter (Mr Bradshaw), although I am afraid I agreed with virtually nothing that he said. I welcome the new Minister, for whom we have great hopes. He is following on from an excellent Minister, who is now in the Northern Ireland Office, and whose work on cycle helmets we certainly appreciate.

I congratulate my hon. Friend the Member for Reading West (Alok Sharma) on being brave enough to introduce this really important debate. By the time he leaves this room, the Twittersphere will be filled with hate mail for him. It is extraordinary how members of the public and cycling groups can object to anyone who suggests that we recommend wearing a helmet; that is so wrong.

There is a simple statistic that always amazes me: 15% to 21% of young people wear a helmet and 35% to 40% of adults wear one. So parents are happy to go out and put a helmet on their heads to protect themselves, but will not do it for their children. I do not think anyone would regard me as a pinko lefty liberal. That is not the view of me in the House. Yet it is clear to me that the right thing to do is to bring in the mandatory wearing of cycle helmets for young people. I introduced a ten-minute rule Bill to that effect. The reason for that is simple. Children’s skulls are not developed, so the protection of a helmet is even more important for them than for an adult. Children cannot assess the dangers as an adult can. If adults freely decide to wear helmets it is absurd not to tell children that they must wear them.

My hon. Friend talked about horse riding. We now require children to wear helmets on the cricket field when they are batting and if they are keeping wicket. That has worked well, and now more adult players wear helmets, both when they keep and when they bat. If I had been wearing a helmet when I tried to hook this guy for four off a bouncer, I would not have lost most of the sight in my right eye. I was old enough to make that decision, but when it comes to cycling, surely we should protect children by law.

I know that that is not the Government’s view, and I entirely understand their point of view. The previous Minister made it clear; but he also made it clear that he would do anything outside legislation to promote the wearing of cycle helmets, and in the past few months I am afraid that things have gone backwards from that. I want to read from a letter to the Prime Minister, from the Bicycle Helmet Initiative Trust, which is a splendid organisation. I deal with many charities in my role as a Member of Parliament, and there are those that do something at grass roots, and care about something, and those that just talk about things and are worried about their next grant. The trust is a small charity that cares and does something about it. Angie Lee is a feisty lady who has been fighting on this question for a long time. She is a trauma nurse and sees the results of dreadful injuries. I think she needs to be supported. She has written a powerful letter to the Prime Minister, which is dated 16 October, and which unfortunately has not been replied to or even acknowledged by him, but she puts the case much better than I can. She says:

“When we last communicated back in March this year, you conveyed to me that the Government and the DfT encouraged the use of cycle helmets, especially for children. This offered me some assurance along with the confidence we had in the then Roads Safety minister, Mike Penning. I have not had the opportunity to meet his replacement, Stephen Hammond, as yet.

However, what you conveyed to me is in reality not the case. There is a fundamental conflict between sectors of the DfT, the road safety sector and the sustainable transport unit, with helmets being the ‘sell off’. Over the last two years we have seen a systematic move to undermine helmet use and its benefits and to exclude stakeholders, like ourselves, from being included on forums where cycling and helmets are discussed. It was only through the commitment of Mike that helmets remained high on the agenda.

Your coalition minister, Norman Baker, has publicly voiced his negative views on helmets and their use. Mr Baker’s personal choice and opinion have been widely used by cycling trainers and organisations to legitimise opposition to helmets. The attached document used by the UK’s largest provider of Bikeability training, Cycle Training UK, demonstrates this. This organisation also uses your picture to support its stance. We understand that Mr Baker has set up and leads a forum of selected cycle stakeholders. This is not open to all, but only a selected few who appear to us to be of a similar opinion. Mr Baker appears to be using his ministerial position to support his personal preference not to wear a helmet.

This is not the only conflict to be of concern to us. Last month the DfT launched a new Think! Campaign. The poster design is dreadful. It depicts a ‘green man’ cyclist without helmet, bike lights or reflector band. The ‘green man’ car driver has no seat belt on. These fundamental safety actions were all identified by a group of ten year olds whom I showed the poster to. I also understand that the DfT had discussed using Olympic cyclist, Bradley Wiggins, to launch this campaign but the CTC objected and Mr Wiggins was excluded because of his positive views on cycle helmets. If this is the case, then there is a serious strength of bias that is undermining the independence and impartiality within the department.

These conflicts, bias and segregation are damaging the work of organisations like ourselves, who have little or no access to DfT funding. We had drawn up a business case following a meeting we had with Mike Penning but since his departure, this, not surprisingly, has not progressed as we were expecting. We have invested vast amounts of energy, conviction and hard earned funds in the attempt to protect child and youth cyclists and support the road safety agenda. We have the skills and knowledge to take child cycle safety forward. However, we are not able to overcome constructed obstacles, bias and use of poor science.

Both adult and child cycling casualties are increasing. This is down to poor guidance, personal obstruction and a failure to be open and objective to all views in the interest of a holistic approach to this issue.

I have had the support of the DfT for 20 years, working with changing Governments and numerous ministers over this period. It is, however, the first time that I truly believe that children and young people are being ‘sold off’ in the interest of sustainable transport. Who are the winners? Who is gaining the most and what checks and balances are in place to evaluate this?

You know how hard our charity works. We have been held up as the true ‘big society’. Child cycle safety needs people who are in tune with child and youth needs, who are not financially driven and who are determined to lead on this issue despite external negative extremists.”

[Mr Dai Havard (in the Chair)]

Order. This is a very long quotation. Quotations are meant to be quotations rather than essays.

[Mr Bone]

I am conscious that I may be running over time, so I will not complete it, but I think the Minister has got the flavour of what Angie says. The issue is important; if possible would he nudge the Prime Minister to reply on that vital issue? I know that the Minister’s sympathies are with people wearing helmets, but I think that there has been a movement away from that in his Department in the past few weeks.