Leeds Street Charter

The aim of the Leeds Street Charter is to improve the accessibility of the city for everyone, particularly disabled people. It has been written in partnership with third sector organisations representing disabled groups and pedestrians and sets out a series of commitments that will improve the accessibility of Leeds for everyone. 

The Street Charter’s aim is to help enable all the people of Leeds get around the city freely, travel independently and access all the services they require to lead a healthy and fulfilling life.

Our vision is for Leeds to be the best city in the UK: one that is compassionate and reduces the inequalities that still exist. We want Leeds to be a city that is fair and sustainable, ambitious, fun and creative for all. We want to live in an equal society that recognises different people’s different needs, situations and goals, and removes barriers that limit what people can do and can be.

The Street Charter is in line with Leeds Council Plan to focus of reducing inequalities and values of treating people fairly and working with all communities. Leeds City Council’s four ambitions (Health, Growing, Thriving and Resilient) are the priorities to achieve our mission of reducing poverty and inequality. They sharpen our focus on the actions that will make the biggest difference to improving people’s lives in Leeds over the next decade, including making the city’s public spaces accessible, safe, clean and welcoming.

All street elements should be planned and maintained to ensure streets are as welcoming and usable as possible including:

  • design
  • lighting
  • maintenance
  • cleaning

Our Street Charter has been developed in partnership with many stakeholders including:

  • Leeds City Council departments
  • Police
  • Individual disabled people
  • RNIB
  • Guide Dogs
  • National Federation for the Blind UK
  • Deaf Blind Society
  • Older Peoples Forum
  • Living Streets
  • Access and Use-Ability Group
  • Leeds Hearing and Sight Loss
  • Leeds Deaf Forum

Our Street Charter sets out a list of actions/commitments, which everyone involved agrees to abide by. These have been formed under different headings, which represent the main issues disabled people face when negotiating the built environment in and around Leeds:

There is a variety of relevant legislation, regulations and guidance which provide the framework for accessible highways and street environment. These often prescribe minimum requirements and aim to create a built environment that is user-friendly and accessible to all.

The two key pieces of national legislation which influence access to the built environment are:

  • The Equality Act 2010
  • The Highways Act 1980

It is important to note; there are some locations in the city where there is no clear departmental ownership. Therefore, as part of the Street Charter there is a commitment from services to approach such situations pragmatically to ensure that residents see the necessary improvements and proactive management approach promoted as part of the charter.

Wheelie bins left out on pavements

Wheelie bins are now a common sight on most pavements. Many disabled people collide with wheelie bins, or cannot get down their own street.

Guide dog owners, as well as wheelchair users or people with prams, can be forced to walk in the road because the space is too restricted for them to use the footways. Some people have even told us they avoid going out on bin days.

In some areas with high multiple occupancy residences, the bins are left out on the pavement permanently and are grouped together making it impossible to pass.

Commercial bins when incorrectly placed also obstruct footways.

Quotes from stake holders:

The bins are so grouped together I can’t get past and have to walk on the road.”

I avoid going out on bin day if I can.”

We recognise that wheelie bins, whilst speeding up collections and enabling residents to recycle more, can be a problem if they are left on the pavement after collection. With that in mind, we have assisted collections for people unable to take out and put back their wheelie bins and have an ‘opt in’ system in some areas for recycling to help ensure bins are not left out unnecessarily.

We agree to:

  • encourage residents to place their bins where they are not blocking the pavement and take them in as soon as it is practical after emptying
  • all bin crews to be trained in why it is so important to store bins as safely as possible, including producing new training video
  • support work of national charities on awareness campaigns to encourage residents to be considerate in how they place their bins, including new video that can be shared on social media
  • where bins are left out following collection, run localised campaigns such as bin stickers (similar to the “slow down” campaign) that highlight where there is a particular issue/problem
  • consider the requirements of the Equality Act in relation to our waste collection policies
  • provide areas where residents and bin crews can leave bins in an accessible area off pavements and footpaths, where viable and when all other options to reduce obstructions have proved unsuccessful
  • create a specific section on our web page: ‘Clean and clear streets - leeds.gov.uk’ where obstructions regularly caused by residential bins can be reported
  • take enforcement action where there is evidence that wheelie bins are regularly causing an obstruction or there is a specific Public Space Protection Order in place
  • take enforcement action if commercial bins are consistently blocking the publicly maintained highway
  • continue to pilot a wheel-in service for residents who are disabled, adding an extra crew member to each waste team

Parking on pavements

Drivers that use the pavement for parking often think they are doing the right thing by keeping the road clear but fail to realise the consequences of their vehicle now blocking the footway. The result is that people with sight loss often cannot see the obstruction until it is too late and collide with the parked vehicle.

Blocking the footway can affect many people if they are forced to go around the vehicle and onto the road. This is particularly hazardous to blind and partially sighted people, wheelchair users, people with small children and/or buggies. Often when reporting such issues a person is passed between the council and the police without a solution being found which can be extremely frustrating.

Quotes from local stakeholders:

Sometimes people park completely on the pavement and blocked it totally and I have to walk in the road which is very scary."

I hurt my arm on a door mirror.”

At the very same time many older and disabled people rely on being able to park a car close to where they live and we receive hundreds of requests for provision of dedicated disabled parking in residential streets. Due to sustained increase in car ownership, this this is often possible only because vehicles are straddling the kerbline. Any specific measures that aim to address pavement parking need to consider the impact on those people for whom the car is a mobility aid, including the impact of displaced parking.

We seek to address specific issues by the careful management of problem parking at hotspot locations. We will address this by using traffic management measures and other Traffic Regulation Order (TRO) restrictions as most appropriate. This approach can be successful because, rather than moving the parking problem elsewhere, it can lead to better facilities for parking and thus manages the situation in the affected locality to everyone’s benefit.

The management of parking forms a major part in the council’s transport planning activities and we continue to keep this important issue under review.

We agree to:

  • support changes to national legislation to remove obstructive parking
  • lobby on a regional level for de-criminalisation of obstructive parking to allow Parking Services to manage the obstruction
  • work with the police to use their existing powers under the Highways Act and other legislation to keep the pavement clear of obstructions caused by parked vehicles
  • engage with disabled people, other stakeholders and the wider community to improve awareness of the dangers of parking on pavements, particularly around schools and other community venues where there is a high footfall
  • working on case by case basis, identify and address hotspots across the city and explore the option of introducing Traffic Regulation Orders and/or physical measures to effectively manage parking
  • continue to work with schools on dangers of inappropriate/obstructive parking
  • continue to consider appropriate parking/loading provision as part of schemes
  • create realistic alternatives to car use for short journeys to minimise the need to own and use a car and therefore tackle the root cause of the issue of obstructive parking

Advertising boards

Advertising such as ‘A’ boards and flags are in general use across the country. Businesses use them to highlight their ‘presence’ on the street and to advertise special offers and promotions.

However, advertising boards can add to street clutter, physically obstruct the pavement, block routes, present trip and collision hazards and be an impediment to passers by and potential customers. The temporary and mobile nature of these boards can make the pavements difficult to use. People with sight loss cannot learn where they are and struggle to avoid walking into them making journeys stressful and hazardous.

For this reason, we have a ‘no A boards’ policy for the city centre and has restrictions in place for the use of A boards on the public highway in local centres and high streets.

Quotes from local stakeholders:

The things outside shops really hurt, if your cane misses them.”

Advertising boards make it really hard for me to get to my local shops, sometimes I think twice before going out.”

We agree to:

  • have a clear policy statement that we do not support the use of city centre A boards as advertising outside existing licensed street area
  • enforce ban of A-boards on pavements in the city centre outside existing licensed street area
  • review the existing policy on A boards outside of the city centre
  • work with local disabled people to monitor and mitigate the impact of any temporary obstructions that appear on pavements
  • in collaboration with national charities, work with local business owners, Business Forums, Business Improvement Districts and Town Teams to raise awareness of how A-boards cause real difficulties for disabled people and to consider and promote alternative forms of advertising
  • work with national charities to put pressure on national chains to stop using A-boards

Use opportunities offered by high street improvement schemes to agree local ‘no A boards’ policies and practice.

Street and cafe furniture

Many items of street furniture, including tables and chairs appear on highways for desirable, practical and aesthetic reasons. Street cafes can contribute to the local economy and improve the perception of safety by creating well used and well overlooked public spaces. They can offer places to rest for older people and also provide level access and seating.

However, problems are caused when they are poorly placed, poorly managed, overused or when the obstacle is hard to see or restricts the space necessary to negotiate an area.

Quotes from local stakeholders:

Why are cafes allowed to put tables on the pavement? I can’t get past them with my cane and I have walked into the table and spilt a lady’s cup of tea all over her.”

I find it difficult to walk up to the shops because of all the obstacles so I have started using a taxi."

We agree to:

  • all street cafe areas should be licensed (through the Business and Planning Act) and that as part of the application and approval process, accessibility requirements such as remaining pavement widths and use of barriers are considered as key factors in the decision to approve or reject/amend a licence
  • continue to ensure that the terms of licence are being met, including that the cafe is using the agreed location of barriers
  • take enforcement action against those that do not follow the agreed terms of the licence
  • set up accessible ways for disabled people to report collisions and injuries they experience and keep a record of such incidents
  • in accordance with section 149 of the Equality Act, undertake street furniture audits, where significant issues are reported, with disabled people to ensure areas are inclusive
  • in accordance with section 149 of the Equality Act, when town centres and neighbourhoods are redeveloped, proactively engage with communities including older, disabled people and under-represented groups around consistent design of the development and implementation of street furniture

Overhanging shrubbery and branches

Many visually impaired people have described the problems caused by overhanging branches and shrubbery when walking in their local area, particularly in the summer months. If people walk into them because they are undetectable it can cause head or eye injuries. Leaves on the footway can also make it slippery and almost impossible to use a rollerball long cane.

Quotes from local stakeholders:

I have walked into a spiky bush and it scratched the side of my face.”

I heard some people laugh when I walked into a tree. I was very upset.”

We agree to:

  • respond to complaints about council owned trees obstructing pavements and that the 2.5m clear space underneath is maintained
  • discourage use of spiky plants in areas people could come in to contact with them
  • identify and prioritise reports where overhanging branches cause an obstruction to daily journeys for disabled people for actioning
  • work within the council and with national charities on awareness campaigns to encourage residents to manage any over-hanging shrubbery and trees

Inaccessible or faulty crossings

Pedestrian crossings help overcome the barrier of busy roads and are an essential component that enables people, especially older people, disabled people and children, to travel safely and independently.

Crossing points can be hazardous when tactile paving has not been used correctly, when the crossing point is poorly maintained such as faded zebra crossings or tactile paving which has worn out. Temporary crossing points can be particularly problematic to some user groups.

Quotes from local stakeholders:

I have tried to make the council aware of the problems in my area but to no avail."

I have to travel a lot further on the bus and walk back to find a safe place for me to cross.”

We agree to:

  • continually review the need to provide pedestrian crossings and upgrade/ refurbish existing crossing locations
  • apply national guidance when it comes to the use of audible beeps, rotating cones and tactile paving
  • work with disabled people to review and audit pedestrian crossings
  • ensure that there is an accessible mechanism to report faults with crossings
  • regularly monitor and maintain the accessibility of crossings and look at increasing crossing times, especially in busy areas
  • ensure that the process of requesting a new crossing point is accessible for disabled people
  • work with contractors to ensure temporary crossings are accessible and legible to blind and partially sighted people
  • all temporary signal controlled crossings will have audio and/or rotating cones
  • wherever possible, implement segregated pedestrian and cycle crossings where cycle infrastructure is present

Defective footways

Damaged or severely uneven footways are unpleasant to use and can lead to falls and injury as well as damage to mobility aids such as scooters and wheelchairs. In some cases, damage to a footway may even tempt the pedestrian to place themselves at risk by entering the carriageway to avoid such areas.

Uneven flags stones can create a trip hazard particularly for blind and partially sighted people, disabled people and older people. Uneven surface causes issues with ponding and can make the use of a long cane very tiring. It can also nullify some of the benefits of tactile paving as cane users cannot pick up the difference between a very uneven footway and blister paving.

Tactile paving is of great benefit to blind and partially sighted people. Unfortunately, where the tactile flag is regularly driven over, they do become cracked and often result in an uneven surface. This uneven surface then causes issues for those on smaller mobility scooters, wheelchairs and creates a trip hazard for all pedestrians.

There are extensive areas of flagged footways in Leeds, including York stone flags in Heritage areas. Where driven over, flagged footways can become problematic for pedestrians due to flags lifting and cracking. We have changed construction types recently, especially in the city centre where streets are at greater rich of being driven over and are cleansed by mechanical sweepers, in an attempt to make them less susceptible to damage caused by vehicle over-riding.

Tree roots often cause damage and cracks to both tarmac surfaces and also lifts flags (including stone flags). Tree preservation policies can prevent correct rectification for such damaged footways where roots are the issue and where limited repairs can be arranged such as bridging over roots rather than cutting and removing the root itself.

Moving forward, in new developments where trees are to be planted within the adopted (or to be adopted highway), new construction practices should prevent damage on these new sites.

Rainwater ‘ponding’ at dropped crossings also cause issues for pedestrians; however, an upstand on a dropped crossing which could help channel water and prevent ponding, can not only create damage to wheelchairs and mobility scooters, but cause painful discomfort for the disabled traveller, especially those who suffer with spinal injuries. It can also prevent manual wheelchair users from exiting the carriageway. On the other hand, water run off and ponding can erode the edge of the carriageway creating a channel which may trap front wheels of a wheelchair.

Traditional surfaces, such as cobbles and York stone flags in heritage areas, can cause severe discomfort both for manual wheelchair users and underfoot, and affect older people and disabled people. These can be minimised if cobbles are well set, but again this can be labour intensive and expensive.

Managing our highways is a critical challenge for the council. The council is expected to manage an ageing network with high public expectations for safe, reliable and comfortable travel and to seek the most efficient use of limited public resources in doing so.

The council has long since recognised that an extensive highway asset management system is essential to deliver an effective and efficient approach to the long term investment in the condition of highways in Leeds.

Leeds has developed a whole life highway asset maintenance model which ensures a balance between structural and preventative maintenance treatments by considering the current condition and rate of deterioration for each street, over the whole of the city. Dropped kerbs at junctions are provided routinely as part of full street refurbishment works.

5 criteria, are used to produce a prioritised list of potential schemes for roads and/or footways, to be included in the rolling Forward Works Plan:

  • Network Hierarchy
  • Condition Assessment
  • Engineers Assessment
  • Lifecycle Planning
  • Value Management

Unfortunately the maintenance needs (or backlog) of the city’s streets far exceeds the funding received on an annual basis from Central Government and the council. We therefore are only able to fund structural work on footways and carriageways in the poorest condition, whilst also carrying out a programme of preventative treatments to prevent streets from deteriorating to such an extent that they require structural treatments.

In additional to the planned works programme described above the council also manages a reactive repairs programme where street safety defects are assessed in terms of the risk they pose to the general public.

These defects are repaired in line with agreed timescales, depending on this level of risk. We also work directly with disabled people and their organisations to identify locations where small access improvements such as dropped kerbs and tactile paving, can be provided ahead of planned maintenance.

We agree to:

  • continually monitor highways assets for condition and maintenance needs
  • continue to develop prioritised planned maintenance and strengthening programmes to maintain the assets in a safe and serviceable condition appropriate for their use together with a view to minimising whole life costs
  • work with disabled people and their organisations to pro-actively identify location where access improvements are required and likely to most benefit people

New developments and shared space

Although there is very little shared space in Leeds, concerns have been raised as a direct result of people’s negative experiences in other areas. Shared space or poorly designed developments are particularly problematic for blind and partially sighted people. Not being able to follow or use the building line to navigate or the removal of kerbs, road demarcations and controlled crossings can make it impossible for a blind or visually impaired person to navigate the space. This results in area’s becoming “no go” areas which in turn can lead to social isolation.

We agree to:

  • follow local and national guidance regarding shared space
  • in accordance with the Public Sector Equality Duty, involve and consult with blind and partially sighted people when new shared space schemes are put forward and make any necessary changes to the schemes. Where this is not possible, they should consider if the scheme should still go ahead
  • work with disabled groups on large new developments

Inappropriate (or lack of) cycling infrastructure leading to riding on pavements

Bicycles offer an alternative to driving for short journeys and so play a role in reducing demand for parking, congestion and air pollution.

However, bicycles travel at 3 to 4 times the speed of pedestrians and do not generate noise. The main issue around mixing with cyclists is the awareness that a cyclist is approaching. Being passed by a fast moving cyclist is unnerving for anybody, but particular so to an older, blind or partially sighted person.

For a blind person, having to take an avoiding action can result in a loss of concentration and missing tactile clues in the environment, leading to disorientation and a loss of direction. Near misses or, worse, being in a collision with a cyclist can lead to a catastrophic loss of confidence in going out independently, leading to reliance on assistants or carers or increased social isolation. People with autism, both cyclists and pedestrians, can find shared environments confusing and very frustrating.

Problems can also occur at crossing points; both where pedestrians are crossing a cycle track and with crossing the carriageway; particularly so where cyclists are using a ‘contraflow’ facility on a one way street. Blind and partially sighted people who rely on the noise of traffic to determine when it is safe to cross would not necessarily be expecting a cyclists travelling noiselessly in an opposite direction.

We have adopted the following approach to try to minimise conflict between cyclists and other users of the highway:

  • programme of creating bespoke cycling infrastructure, including segregated cycling facilities detectable to pedestrians. Surveys suggest that this has helped reduce the number of cyclists using the pavement by 50%
  • introduce bus stop by passes where appropriate
  • follow national guidance on the provision of cycling infrastructure, including infrastructure around bus stops and the provision of crossings
  • seek input from the Access and Use-ability group and other relevant groups on designs for new cycling facilities in the city centre
  • reducing the use of shared walking and cycling facilities, limiting these to greenways, leisure routes and constrained corridors where the use by both pedestrians and cyclists is low and where there is no other viable alternative
  • running considerate cycling campaigns, including a road safety blog
  • work towards delivery of cycle company service level agreement
  • ensure bike share schemes are inclusive and accessible

Accessible reporting mechanisms

Public reporting of issues is moving online for efficiency reasons, this can present disabled people with issues when they want to report an issue. Some online reporting doesn’t meet current accessibility criteria. It may be difficult for a partially sighted person to highlight on a map the location of the issue and online forms may be difficult to fill out for disabled people. A single phone number has been introduced, but there are difficulties when calls are transferred to the relevant department if the relevant people are not available.

Disabled peoples organisations can offer support to disabled people, but only if they can communicate effectively on behalf of their members/ service users. This includes having a clear picture of what happens to the request, how it may be resolved, how long it will take and a report back when the issue has been resolved. There also needs to be a space on forms to be able to highlight the differential impact the issue may have on the caller with a disability; such as inability to cross the road and get to work, unable to find an alternative route therefore not going out at all.

We agree to:

  • set up accessible ways for people to report the issues in the previous sections
  • include disabled people in the user network is being used to test the new online platform, identify issues and get feedback
  • facilitate the use of ‘what three words’ in locating specific problems
  • monitor the online services for effective use by disabled people following customer testing
  • involve disabled people in the live project to redesign ‘end to end’ all services that customers contact the council about
  • investigate the viability/potential options for more direct points of service contact by phone for disabled people
  • investigate how disabled people’s organisations, in particular can report an issue affecting their members most effectively
  • investigate how disabled people can highlight the magnitude of their issue and how it affects their daily life, in order for their request to be prioritised based on its impact

Useful information and contacts

General highways

Wheelie bins left out on pavements

Parking on pavements

Issue with pavement, including obstructions

Illegal advertising boards

Street cafe furniture causing an obstruction

City centre businesses

Outside the city centre

Overgrown shrubbery and branches

Inaccessible faulty crossings

Request a disabled parking bay, vehicle crossing or dropped curb

Issue with a road or cycle path

Report a pothole

Leeds city council contact centre