By Jennifer Moon, Guide Dogs NSW/ACT
Guide Dogs Australia conducted research through EY Sweeney from February to March 2023 to better understand the needs of people around Australia with low vision or blindness to identify instances of unfair treatment or discrimination.
As part of a longitudinal study, with previous research taking place in 2010 and 2015, this research was aimed to better understand the needs of people with low vision or blindness when accessing their communities.
This article will focus on the findings relating specifically to footpath and urban design challenges. It will also discuss the environmental clues used by people with low vision or blindness and the paramount safety concerns when they are removed.
Survey Methodology
A total of 622 people from around Australia, aged 18 years or older with blindness or low vision completed the 2023 survey.
Results indicated a very strong narrative that people with low vision or blindness face numerous challenges in public places, which greatly impacts their confidence and ability to access and participate in their community.
Respondents suggested that if urban design was improved and if awareness of their challenges were enhanced through community education, many of their issues would be mitigated.
Key Findings – Footpath Challenges
The survey revealed that nearly all (96%) respondents had experienced footpath issues in the last two years. Micro mobility (e-scooters, e-bikes), shared paths, shared roads and crowd protection barriers were reported as new emerging footpath issues, not even mentioned in the 2015 research.
Footpath Challenges: Total respondents
- New works / construction 55%
- Electric Scooters / E-Bikes / micro mobility 49%*
- Shared paths 46%*
- Outdoor dining/street furniture 46%
- Goods displays 44%
- Shared roads 35%*
- HVMB / Crowd Protection Barriers 27%*
These footpath challenges were amplified by an additional 15% (average) for respondents aged between 55 – 64 years.
Shared path / Active Transport Link
Shared paths, designed for both cyclists and pedestrians, emerged as a significant problem for nearly half of all respondents, a concern not reported in the 2015 survey. The issues surrounding shared paths for people with low vision or blindness stem from the challenges of safely navigating these paths, often demarcated only by a painted line, while dealing with the speed and unpredictability of cyclists and micro-mobility device users.
Figure 1: A runner, a cyclist and a person riding a scooter all on a shared path.
Key Findings – Urban Design
A critical challenge affecting the safe and independent mobility of people with low vision or blindness when accessing their communities related to shared roads/zones and flush finish road crossings. Alarmingly, 80% of all respondents lacked confidence in crossing roads when the footpath and road were at the same level. In Queensland, this figure soared to 86%.
Areas where the road and footpath are at the same level are commonly found in shared zones/spaces, continuous footpaths, and flush finish intersections. Interestingly, the survey revealed no significant differences among respondents or locations, except for even lower confidence levels among respondents aged 65 and older.
Shared Roads/Zones/Spaces
In a shared zone, space is shared safely by vehicles and pedestrians, where pedestrians have priority. There is no segregation of modes through kerbs, line markings, or signage. The surface remains uninterrupted across the entire area, and the speed limit is reduced to 10 km/h or less.
This continuous surface poses challenges for individuals with low vision or blindness. The absence of clear demarcations and continuous finishes hinders straight-line navigation. It becomes particularly problematic when obstacles such as street furniture, goods display, and outdoor dining are positioned along the building line. Furthermore, the presence of silent electric vehicles intensifies the difficulty of avoiding unintended veering into the path of traffic.
Figure 2: A person riding a bicycle in a shared zone.
Continuous footpaths
A continuous footpath refers to a path that runs parallel to the main street, allowing pedestrians clear priority in areas where the vehicle traffic volumes are relatively low. This footpath remains level with the road, lacking any change in colour or texture, and extends across the side street intersection.
Technical specifications seem to be silent on the installation of warning tactile ground surface indicators. Often cycle paths run parallel to the continuous footpath so the threat of veering into a cycle path or worse, the road, is very real for people who are blind or have low vision.
Figure 3: A car travelling over a raised pedestrian crossing.
Flush Finish Intersections
The Flush Finish, traffic light controlled intersection stands out as an incredibly dangerous urban design for people who are blind or have low vision. In these intersections, there are no gutters, kerbs, or kerb ramps; instead, there is a seamless transition from a ‘safe’ footpath to a hazardous road with only warning tactile ground surface indicators serving as the boundary marker.
These intersections often feature multiple lanes of traffic in both directions, alongside public transport modes including buses and light rail vehicles. As a result, people who are blind or have low vision report heightened anxiety when navigating these locations and many actively avoid them due to the inherent dangers they pose.
The survey’s revelation that 80% of respondents (86% of Queenslanders) lacked confidence crossing roads at-grade, underlines the urgent need to advocate for safer and more functional design solutions that prioritise their safety and accessibility.
Figure 4: A flush finish intersection with multiple lanes of traffic and a light rail vehicle
Tactile Ground Surface Indicators (TGSIs)
Australian Standards, AS 1428.4.1 (2009) Clause 2.5, which deals with ‘Pedestrians and vehicles at the same grade,’ is increasingly unsuitable for the evolving urban landscape and must be reconsidered. Warning Tactile Ground Surface Indicators TGSIs alone are insufficient to provide clues in high-danger areas. They should be considered as the last of many clues, not the only clue.
Guide Dogs consistently advocates for the Foreword of AS 1428.4.1 (2009) because it articulates a crucial point, Tactile Ground Surface Indicators (TGSIs) offer cues that when combined with other environmental information, assist people who are blind or have low vision with their orientation. It highlights that the use of TGSIs alone cannot rectify poor design or transform an unsafe environment into a safe one. Instead, the emphasis is on good design that minimises the reliance on TGSIs.
Key wayfinding & safety factors for people who are blind or have low vision
People who are blind or have low vision encounter significant challenges when navigating urban streets and road crossings independently. Whether they rely on long canes, Guide Dogs, or their remaining vision, ensuring their safety and orientation in an urban environment is a demanding task. Key factors for their safe travel include maintaining a straight path, distinguishing between safe footpaths and hazardous roads with compliant kerb ramps, and determining safe road crossings. A straight path is crucial for all travel methods, aiding orientation and safety.
Compliant kerb ramps serve as vital markers distinguishing safe footpaths from hazardous roads, providing detectable gradient changes. These ramps enable people who are blind or have low vision to pause, assess crossing conditions, and reinforce appropriate Guide Dog behaviour when approaching roads. Identifying safe crossing points and assessing traffic conditions is paramount. Compliant kerb ramps often indicate these points and should align straight across roads to minimise the risk of veering into intersections. Controlled intersections benefit from the presence of Audio Tactile Signals (ATS) near kerb ramps, providing both auditory and tactile feedback. In contrast, uncontrolled intersections rely on hearing, which is increasingly challenged due to the rise of electric vehicles.
While removing kerbs ramps might be beneficial for many user groups, their removal is certainly detrimental for the safe navigation for people who are blind or have low vision. Additionally, the cognitive load and intense concentration required by people with blindness or low vision to navigate with safety and confidence becomes even more challenging in crowded, uneven, or obstructed footpaths. The transition from a safe footpath to a hazardous road must be clear and conspicuous for their safety and independence.
Where to from here
The survey has given people who are blind or have low vision a voice in articulating their challenges when accessing their communities.
The study emphasises that while urban designers may not intentionally exclude people with low vision or blindness, their designs unintentionally hinder safe and independent travel.
Guide Dogs will need to collaborate with the disability sector as well as designers, adopting a co-design approach to identify safer and more functional solutions, for everyone. Our collaboration should extend to working with transport agencies and urban designers to revise technical specifications that are no longer suitable for today’s environments. Specifically, we need to revisit Australian Standards, such as AS 1428.4.1 (2009), with a critical eye. Access consultants, now informed of these urban design issues play a vital role in promoting and educating for safer solutions. The resounding message from people with low vision or blindness is clear: action is urgently needed to create inclusive urban environments that prioritises safety and accessibility for all.
“I found it very hard to navigate along that part of the road (George Street, Sydney CBD) because there is no step down letting me know where the footpath ends and where the road begins. A few times people dragged me back onto the footpath because I ended up on the street. I cannot travel into the Sydney CBD on my own anymore because of the way the roads are set up.”
Greg, Guide Dog Handler
“I am a blind woman who is highly independent. When the footpath and road are at the same level, I feel very unsafe. I cannot tell where the footpath ends, and the road begins. A kerb or kerb ramp enables a blind person to line up accurately to cross a road safely. The increased pedestrian traffic, environmental noise and obstacles such as E-bikes require huge concentration and often result in cognitive fatigue. I only have to lose concentration for a second and I can find myself on the road in the path of oncoming traffic. When I travel through Sydney CBD, I feel constantly anxious and fearful for my safety”.
Leanne, Guide Dog Handler