Eligibility for the Blue Badge Scheme
Final Report
Prepared for
by
Version 1.2 November 2007
Although this report was commissioned by the Department, the findings and recommendations are those of the authors and do not necessarily represent the views of the DfT.
Eligibility for the Blue Badge Scheme
Report
Prepared for
Department for Transport
by
Author(s) / Davina Fereday, Phil Barham, Philip Oxley, John HunterProject Manager / Phil Barham
Project Number / L/05/243
Version / 1.2
Date / 27thNovember 2007
File location / C:\Documents and Settings\DfT Blue Badge Eligibility
Last edited / 27thNovember 2007
This report has been prepared for Department for Transport in accordance with the terms and conditions of appointment. Transport & Travel Research Ltd cannot accept any responsibility for any use of or reliance on the contents of this report by any third party.
Eligibility for the Blue Badge Scheme
CONTENTS
0EXECUTIVE SUMMARY
0.1Introduction
0.2Recommendations
0.3Methodology
0.4Summary of Key Findings
0.5Conclusions
1Introduction
1.1The Blue Badge Scheme
1.2DPTAC Recommendations on the Eligibility of the Blue Badge Scheme (2002)
2Description of the Medical Conditions Considered
2.1.1Partial sight
2.1.2Autism
2.1.3Colitis and Crohn’s disease
2.1.4Alzheimer’s disease and other dementias
2.1.5Learning disabilities
2.1.6Mental health difficulties
2.2Discussion of Whether to Use a Diagnostic or Passporting Route
2.2.1The DLA as a “passport” to a Blue Badge
2.2.2Using the possession of an NHS wheelchair as a passport
2.2.3A composite approach
3METHODOLOGY
3.1The Approach
3.2Work-package 3: Assessment of Mobility Problems and Aspirations
3.3Work-package 4: Impact Assessment
3.3.1Focus group sampling
3.3.2Stakeholder consultation
4FINDINGS OF THE assessment on mobility EXPERIENCES and aspirations
4.1People with Autism, and Parents and Carers of Autistic Children
4.1.1Travel behaviour and mobility problems
4.1.2Aspirations and perceived benefits in relation to parking concessions
4.1.3Perceptions of the Blue Badge Scheme and its administration
4.2People with Colitis or Crohn’s Disease, or Similar Conditions
4.2.1Travel behaviour and mobility problems
4.2.2Aspirations and perceived benefits in relation to parking concessions
4.2.3Perceptions of the Blue Badge Scheme and its administration
4.3People with Alzheimer’s Disease, or Similar Dementia, and their Carers
4.3.1Travel behaviour and mobility problems
4.3.2Aspirations and perceived benefits in relation to parking concessions
4.3.3Perceptions of the Blue Badge Scheme and its Administration
4.4People with Learning Disabilities and People with Mental Health Difficulties
4.4.1Travel behaviour and mobility problems
4.4.2Aspirations and perceived benefits in relation to parking concessions
4.4.3Perceptions of the Blue Badge Scheme and its administration
4.5People who are Partially Sighted
4.5.1Travel behaviour and mobility problems
4.5.2Aspirations and perceived benefits in relation to parking concessions
4.6Alternatives to the Blue Badge
4.7Summary of Aspirations and Perceived Benefits of Parking Concessions
5ATTITUDES OF BLUE BADGE HOLDERS AND NON BLUE BADGE HOLDERS
5.1Findings of Consultation with Current Blue Badge Holders
5.1.1Experiences and perceptions of the Blue Badge Scheme, and of current eligibility criteria
5.1.2Reactions to the possible extension of the Blue Badge eligibility criteria
5.2Findings of Consultation with Non Blue Badge Holders
5.2.1Experiences and perceptions of the Blue Badge Scheme, and of current eligibility criteria
5.2.2Reactions to the possible extension of the Blue Badge eligibility criteria
6. STAKEHOLDER VIEWS ON THE IMPACTS OF EXTENDING THE ELIGIBILITY CRITERIA of the BLUE BADGE SCHEME
6.1Benefits of Parking Concessions to the Groups Being Considered for Eligibility and Impact on Social Inclusion
6.1.1Children and adults with autism
6.1.2People with colitis or Crohn’s disease, or similar conditions
6.1.3People with Alzheimer’s and similar dementias
6.1.4People with mental health difficulties
6.1.5People with learning disabilities
6.1.6Partially sighted people
6.1.7Social inclusion
6.2Impact of Extending the Eligibility Criteria on Congestion and Traffic Flows
6.3Impact of Extending the Eligibility Criteria on Public Acceptance of the Blue Badge Scheme
6.4Impact of Extending the Eligibility Criteria on the Practicality and Cost of the Administration of Parking Concessions
6.5Impact of Extending Eligibility Criteria on Abuse of the Provision of On-street, or Off-street, Parking Facilities for Disabled People
6.6Groups that would Most Benefit from Eligibility for Parking Concessions and the Type of Concessions that would be Most Appropriate
6.6.1Temporary Concessions
6.7Other Issues Raised
6.7.1Provision of parking facilities for disabled people
6.7.2 Reference to carers
6.7.3 Off-street parking
7discussion OF THE FINDINGS
7.1Views on the Eligibility of Parents or Carers of Children with Autism
7.2Views on the Eligibility of People with Learning Disabilities and People with Mental Health Difficulties
7.3Views on the Eligibility of People with Ulcerative Colitis and Crohn’s Disease
7.4Views on the Eligibility of People who are Partially Sighted
7.5Views on the Eligibility of People Displaying Advanced Symptoms of Alzheimer’s Disease
7.6The Issue of Administration of the Blue Badge Scheme, and Current Levels of Abuse
8conclusions
8.1. Costs and Benefits Associated with Extending the Eligibility Criteria for a Blue Badge
8.1.1. Benefits
8.1.2. Costs
9Summary of Recommendations
Transport & Travel Research LtdNovember 2007
Eligibility for the Blue Badge Scheme
0EXECUTIVE SUMMARY
0.1Introduction
In April 2005, the Mobility Inclusion Unit of the Department for Transport commissioned a research project to undertake an evaluation of the eligibility for the Blue Badge Scheme. The Blue Badge Scheme is currently designed to provide on-street parking concessions for people who are unable to walk, have severe difficulty in walking or are blind, and this is reflected in the existing eligibility criteria for a badge. The objective for this project was to assess whether people with certain disabilities which do not necessarily affect their physical ability to walk, nevertheless have significant mobility difficulties that could be alleviated if they were to become eligible for the Scheme. Such concessions might entail entitlement to the full benefits of the Blue Badge Scheme, or a more limited entitlement, if appropriate. This is an acknowledgement that many disabled people have impaired mobility for reasons which might be “invisible”.
There are five groups of people for whom eligibility for parking concessions is being considered:
- People with autism, and parents and carers of autistic children
- People with Colitis or Crohn’s disease, or similar conditions
- People with Alzheimer’s disease, or similar dementia, and their carers
- People with learning disabilities and people with mental health difficulties
- People who are partially sighted
As well as examining the mobility needs of certain groups of disabled people, the project assesses the impact of extending the Scheme on the viability of the Scheme as a whole, evaluating the impact of any increase in the number of badges both on the ability of badge holders to make use of the Scheme, and on non badge holders. Furthermore, the research sought to investigate ways in which the severity of different conditions could be measured, so that a fair, workable and unambiguous means could be devised for identifying people who should be newly eligible for parking concessions. The reason for developing criteria for limiting the extent to which eligibility should be extended relates to concerns as to the potential negative implications for increasing the number of people entitled to parking concessions, and these concerns were investigated during the impact assessment phase of the research.
0.2Recommendations
The main recommendations from the current research are as follows,
- Eligibility for the Blue Badge Scheme should be extended to disabled people in the categories considered during this research, and others who meet the suggested criterion that they require help, in the form of physical contact, from another person in order to cross a road safely, making due allowance of course for the normal range of development of road safety skills in children. This is distinct from merely needing supervision, encouragement, guidance or reassurance from another person.
- Whilst it is not thought appropriate for Blue Badge eligibility criteria to be extended to people with colitis, Crohn’s disease or some other condition which requires them to sometimes find a toilet at short notice for the purpose of defaecation or urinary need, it is recommended that enforcement agencies be encouraged to adopt some mechanism for tolerance and pragmatism in relation to such people’s needs. It is suggested that consideration be given to more widespread recognition of mechanisms such as that used by members of the National Association for Crohn’s & Colitis, which enables them to leave a card on their vehicle dashboard to explain to enforcement officers and the general public the reason for their vehicle being inappropriately parked for a short period.
- Assessment of a person’s eligibility for a Blue Badge outwith the groups who have a statutory or deemed right to hold one should not be the responsibility of the person’s own GP, but should instead be undertaken by an independent panel of qualified health professionals at the behest of the Local Authority. A model for how such a system might work can be found in the Lothians of Scotland, and is described in this report.
0.3Methodology
Much evidence has been gathered to support the assessments, by means of qualitative research techniques. Focus Group discussions and telephone interviews were undertaken to ascertain the needs and interests of individuals that fall within the groups being considered for eligibility of parking concessions. Blue Badge holders and non Blue Badge holders have been consulted through undertaking a series of Focus Group discussions to establish how “real” customers think and behave, obtain initial reactions to the possible extension of the eligibility criteria for the Blue Badge Scheme, and to identify the reasons underlying attitudes. Organisations representing the interests of some disabled people were also consulted and a wider consultation with key stakeholders was undertaken as part of the assessments to establish user needs and impacts. Consultation was carried out by means of telephone interviews, face-to-face interviews and email correspondence.
0.4Summary of Key Findings
Mobility problems experienced and the need for parking concessions
People with autism, and parents / carers of autistic children
The symptoms associated with autism and related conditions made travelling and walking to destinations extremely problematic for the parents and carers in this study. People with these conditions, especially children, reported a high level of fear of their personal security, and anxiety when outdoors, in crowded environments or in large open spaces especially those with which they were unfamiliar. This fear is caused by perceptions of a general lack of tolerance among the general public and there is also a fear that the child will run away from his or her parent or carer. There was a general concern among parents and carers for the child’s safety should they run into the road or become lost. As the child becomes older and physically stronger,he or shebecomes potentially more difficult to control or restrain. Parents and carers contributing to this study reported frequently experiencing problems reaching their final destination because of these issues, which sometimes causedtrips to be abandoned. Access to day-to-day activities (including school) and the child’s participation in social and recreation activities was seriously affected as a result of problems caused when travelling.
The findings therefore show that eligibility fora Blue Badge would greatly enhance the social inclusion of children with autism and related conditions. Reduced walking distance to their final destination means avoidance of the factors which make the individual vulnerable, or which put their safety at risk. Removing fears for personal safety might encourage parents and carers to take their child(ren) out more, so increasing the social and recreational activities in which they are able to take part. Parents whose children were already eligible for a Blue Badge, due to their entitlement to the higher rate of mobility component of the Disability Living Allowance (DLA),reported that the Blue Badge had enabled them to travel more frequently with their children, and to access activities which helped to develop the child’s education and social skills.
People with colitis or Crohn’s disease, and colostomates
The key need of this group is to be able to quickly access toilet facilities when making any kind of journey. People with this condition reported a general lack of adequate public toilet facilities and problems finding a suitable parking space close to a facility. They generally relied on using whatever facilities were available, which ranged from shops and restaurants, to offices, if there were no adequate public toilets. There was no evidence to suggest that their eligibility for parking concessions would necessarily change their travel behaviour (i.e. they are nevertheless likely to make a journey without such concessions), but their access to facilities would be improved.
There was some evidence to suggest that the Blue Badge parking concessions would benefit people who have hada colostomy, in terms of their physicalhealth (to access adequate toilet facilities in enough time to change a colostomy bag safely and comfortably)and their confidence to travel (by lessening the fear of the possibility of not being able to access a toilet when needed).
People with Alzheimer’s disease
Alzheimer’s disease and similar dementias significantly reduced the mobility of the participants in this study. People displaying moderate and advanced stages of the disease had to be escorted to ensure their safety. Mobility was affected due to the behavioural or physical symptoms of the person with dementia. These included symptoms such as aggression and anxiety in public places (e.g. disorientation in places where they found it difficult to cope, such as. large car parks, which might lead them to become aggressive and anxious to the extent where their safety, and in some cases the safety of a passer-by, might be put at risk. Confusion and memory loss might also cause the individual to wander off. Carers and relatives in this study reported having lost a person with dementia in their care, (in locations such as hospitals, large car parks, shopping centres and supermarkets). Clearly this is a symptom which causesmuch distress for carers and relatives, as well as for the person with dementia. The possibility of such an incident happeningis a major deterrent for carers and relatives to take the person out. Other symptoms which restricted mobility were incontinence (so that the ability to park close to toilet facilities is essential), problems with vision and spatial awareness (making stepping into and out of a car difficult), and physical deterioration (affecting ability to walk). These were key factors influencing their mobility. Some people with dementia had difficulties walking due to gait abnormalities, diminished motor control or frailty.
For people displaying moderate and advanced signs of Alzheimer’s disease, in this study, everyday activities (e.g. shopping and essential journeys such as those to the hospital) weredifficult if they involve walking to a destination. The problems were so severe that they sometimes led to the trip being abandoned altogether, possibly meaning missing hospital appointments. Their access to and participation in social and leisure activities was also described as being restricted, which put them at high risk of social exclusion. The evidence of this study is clear: the closer carers and relatives are able to park to an entrance, the more mobility problems can be lessened, or avoided altogether, enabling the person concerned to reach his or her final destination safely, with ease and comfort.
The need for parking concessions was generally greater among people displaying middle and late stages of Alzheimer’s Disease and similar dementias, including those experiencing severe memory loss, who find it difficult to communicate, and who require constant supervision. Although evidence shows that people with mild stages of the disease would benefit from Blue Badge concessions, the concessions would not necessarily change travel behaviour, or the person’s ability to go out as much or as often as they would like. For people with advanced Alzheimer’s disease or dementia, the parking concessions are likely to have a significant impact, enabling them to go out more, especially for social and leisure purposes, which would also play an important role in stimulating the mind and helping to slow down the progression of some of the symptoms of the disease. Overall,for people displaying middle and late stages of dementia, this study has identified a casefor parking concessions inpersonal safetyterms,and,depending on the severity of condition, in terms of physical mobility. The findings also indicate that there is a social inclusion case for extending the eligibility of the Blue Badge to this group of people.
People with mental health difficulties
Due to the wide range of mental health difficulties, it is difficult to generalise as to the relationship between mental health difficulties and access to services. This study shows that, while some people with mental health problemsencounter no problems, others face serious barriers. There is evidence in this study that travelling independentlycan be problematic for people with anxiety-related conditions, as this can trigger a panic attack, especially in crowded and unfamiliar surroundings. There was even greater risk of this happening to people with severe disorders (e.g. schizophrenia). For people who have panic attacks, some may start to associate particular places and situations with having such an attack. In an attempt to avoid another attack, some people may startto avoid places where attacks had previously occurred,and this can reduce their propensity to travel and to participate in everyday activities. There is a high risk for people to develop conditions such as agoraphobia or social phobia.
Quality of life and social inclusion could be greatly enhanced by entitlement to parking concessions. More importantly, the evidence here suggests that reduced walking distances to a person’s final destination can, in some cases, potentially reduce the risk of some mental health conditions getting worse. The ability to park close to destinations would help to prevent the person concerned from having an anxiety attack, becoming confused and feeling lost.
People with learning difficulties
For this group the main problem identified in this study was that they felt incapable of making a journey if it entailed crossing a road, (or that they were discouraged from doing so), which posed a serious threat to their access to everyday activities and put them at risk of social exclusion.