TRN-44: Accessibility of Urban Transport for People with Disabilities and Limited Mobility – Lessons from East Asia and the Pacific TRN-44 TRANSPORT NOTES April 2012 ACCESSIBILITY OF URBAN TRANSPORT FOR 77969 PEOPLE WITH DISABILITIES AND LIMITED MOBILITY: LESSONS FROM EAST ASIA AND THE PACIFIC Julie Babinard, Wei Wang, Christopher R. Bennett and Shomik Mehndiratta Accessibility of transport is not always a priority in transport planning and implementation. There can be barriers in the physical environment and delivery of services that render transport inaccessible. The principles of the UN Convention on the Rights of Persons with Disabilities (CPRD) brings new momentum to ensuring accessibility in the delivery of transport infrastructure and services. The CRPD recognizes that obstacles and barriers to indoor and outdoor public facilities and buildings and the physical environment should be removed to ensure equal access by people with disabilities and all members of society. The CRPD has been ratified in over 100 countries, and as it moves forward, Governments and institutions such as the World Bank will need to implement its principles and binding obligations. Transport professionals need to understand and develop expertise in operationalizing access and mobility issues for people with disabilities and people with limited mobility in the design and implementation of projects. This note summarizes the analysis done of the accessibility features of recent transport projects in the East Asia and Pacific (EAP) region. It seeks to highlight good practice in national laws, policies and project implementation to improve the welfare of transport users across projects. The overarching objective is to suggest how to improve the implementation of accessibility features in transport projects for people with disabilities and people with limited mobility. DISABILITY AND MOBILITY IN DEVELOPING caused by a number of factors, such as disease COUNTRIES or accidents. Almost everyone will face temporary or Others who live to old age will likely permanent disability at some point in life; experience increasing difficulties in there are also people with limited mobility 1|Page TRN-44: Accessibility of Urban Transport for People with Disabilities and Limited Mobility - – Lessons from East Asia and the Pacific functioning and many can experience language helps those with hearing impairment disability. or non-native speakers of a language; and announcements of each stop on public transit The first World Report on Disability (2011) may aid travelers unfamiliar with the route as produced jointly by the WHO and the World well as those with visual impairments. Bank suggests that more than a billion people in the world today has some form of disability. Governments often perceive accessibility to be a luxury that they cannot afford, and consider Improved access and mobility are important universal access unaffordable in the face of factors in reducing poverty and can facilitate pressure to meet other priorities. This is the participation of people with disabilities in regrettable; as we will illustrate below economic, social and political processes. significant gains can be made even by just Physical accessibility will also benefit people ensuring that good design principles that offer who are not disabled but have limited inclusion are properly observed when any mobility, including elderly, children, and infrastructure investments are being made. In pregnant women. most cases, following inclusive design Exclusion increases the costs associated with principles requires attention and good design, disability and people who are denied access to not extra cost. essential transport services tend to face THE UN CONVENTION ON THE RIGHTS OF PEOPLE greater challenges to stay out of the poverty WITH DISABILITIES cycle. The CRPD brings new momentum to reducing Too often inclusive transport is not fully barriers in the transport environment. Entered considered in transport planning, design, into force in May 2008, the CRPD is an construction and implementation in international benchmark and binding Human developing countries. Mobility and access Right treaty. Governments must develop requirements of people with disabilities guidelines to make public facilities and should be considered by planning and services accessible (article 9 (2) (a)). The designing barrier- free transport systems. This CRPD also serves as a tool for engaging implies an understanding and identification of country counterparts in inclusive development the circumstances that create barriers for policies and projects, particularly for those people with disabilities (Meriläinen and countries that have signed or ratified the Helaakoski, 2001). CRPD. Obligations of the CRPD include that members that have ratified it must “Enabling transport� for persons with reduced progressively adapt their laws and regulations mobility should take place across all to the principles of the CRPD. Countries must components of the travel chain—the submit their first report to the UN after two pedestrian environment, building and public years from ratification, then every four years. transport. An accessible environment, while particularly The CRPD applies to the urban and transport relevant for people with disabilities also has environment through its application of the benefits for a broader range of people. For following articles: example, curb cuts (ramps) assist parents pushing baby strollers; information in plain 2|Page TRN-44: Accessibility of Urban Transport for People with Disabilities and Limited Mobility – Lessons from East Asia and the Pacific � Accessibility: Guiding principle of the CRPD achieve this, it is necessary to identify and (article 4) and relevant for all areas of eliminate obstacles and barriers to implementation. accessibility. While UD is often thought of in � Physical environment: Measures should be the context of urban transport, the principles undertaken to eliminate obstacles and barriers to indoor and outdoor facilities, also apply to rural roads, the aviation and including schools, medical facilities and maritime sectors. workplaces (article 9 (1) (a)). � Public facilities & buildings: Governments Many countries have guidelines and standards should set an example in ensuring full for creating accessible transport systems. participation in society for persons with Guidelines and standards cover the different disabilities by developing guidelines to parts of transport systems such as the built make public facilities and services environment, outdoor environment, different accessible (article 9 (2) (a)). public transport systems and vehicles used, service and information. Guidelines regarding outdoor environments often include measures for space and width for wheelchair users, appropriate non slippery firm surfaces, maximum gradients on ramps and curb stones, design of handrails, and visual and tactile markings for persons with impaired vision. In some countries appropriate designs for pedestrian crossings, including light poles and guiding technology for visually impaired persons, are included in PRINCIPLES OF UNIVERSAL DESIGN standard street and road design documents. Inclusive development is a critical agenda at the World Bank. To the extent that the World Bank finances the construction of public infrastructure, it has the opportunity to encourage its clients to apply “Universal Design� (UD) and to do so using the most cost- effective methods for its application (World Bank 2008). UD is the design of products and environments to be usable by all people to the greatest extent possible, without the need for adaptation or specialized design. UD seeks to Often, the principles of UD may not be applied enable persons with disabilities to live because designing for persons with disabilities is not institutionalized. Other factors that independently and participate fully in all hinder implementation can include: aspects of life. In transportation, this is done by ensuring that persons with disabilities have � Lack of knowledge amongst professional equal access, with others, to transportation. To staff about the existence of standards and their applicability; 3|Page TRN-44: Accessibility of Urban Transport for People with Disabilities and Limited Mobility - – Lessons from East Asia and the Pacific � Lack of input from the community and � UK: The Department of Transport’s from consultation with persons with website provides guidance information on disabilities on barriers to transport and inclusive mobility (www.dft.gov.uk) priorities for access features; � UN: Design Manual for a Barrier Free � Where standards exist, they are not Environment (http://www.un.org ) implemented or enforced consistently; and � Mexico: Technical manual on accessible � Lack of awareness on the importance of standards for the urban, pedestrian and the issue and coordination among transport environment (In Spanish) government agencies that may be (http://www.seduvi.df.gob.mx/portal/ima responsible for different parts of UD ges/stories/pdf/articulo15/fraccionx/ma elements for a fully accessible trip chain. It nual.pdf) is often the case that officials at � USA: ADA Accessibility Guidelines for government agencies are not aware of how Buildings and Facilities (ADAAG) much impact a little attention to detail in (http://www.access-board.gov ) implementation of public infrastructure � China: Information on laws and can make in terms of the impact on the regulations from China’s Disabled Persons’ lives of people with limited mobility. Federation (http://www.cdpf.org.cn/english/lawsdoc It is critical to adopt UD depending on the level /lawsdoc.htm of existing development and local � Hong Kong: The Transport Department circumstances. Likewise, interventions will provides a guide to public transport for people with disabilities (In Chinese and also vary depending on the mode of English) transportation targeted. There could be an (http://www.td.gov.hk/mini_site/people_ emphasis on developing UD of non-motorized with_disabilities/2009/13-2.html ) mode of transport when such transport provides the greatest share of trips made. In There are common themes across all other circumstances, UD features for buses standards and in the absence of any existing should be emphasized due to their key role in national standards, the use of a standard from providing the majority of trips to many another country is recommended. passengers (World Bank 2008). Accessibility in design standards is manifested ACCESSIBILITY IN DESIGN STANDARDS in a number of different ways, many of which are imperceptible to the general public. For Many countries have made progress in example in public transportation: reducing barriers in the transport environment, particularly in high income � Pedestrian environment: Curb cuts, countries. Countries have implemented Braille markers, traffic signals with sounds regulation and design guidelines which for the blind; � Designated Areas: On buses and metros explicitly consider accessibility for people with designated areas for wheelchair users, disabilities. For some design aspects, an ISO special seats for elderly and people with standard has been developed; e.g. built disabilities; environment, symbols and wheelchairs. � Improved Sizing: Increased width and Examples of accessibility design standards in heights, improved signs and information, the world include: etc. ; and, � Audible and Tactile Features: Tactile guide paths at metro stations, audible 4|Page TRN-44: Accessibility of Urban Transport for People with Disabilities and Limited Mobility – Lessons from East Asia and the Pacific guides at entrances and escalator, Braille Some of the key issues identified at each stage at ticketing machines. of the project cycle include the following: � Planning Stage: Accessibility for people with disability was not a main focus in most of the projects. A key underlying reason appears to be a perception that properly implemented improvements of the pedestrian environment as part of the projects would also improve the situation for persons with disabilities or special needs. While that could often be the case, evidence shows that without adequate attention, new construction in rapidly growing East Asian cities usually does not result in a fully accessible environment. In the case of public transport, while the one ACCESSIBILITY IN WORLD BANK FINANCED project that was financing vehicles did PROJECTS IN EAP explicitly discuss incorporating accessibility principles, project documents A total of 14 World Bank financed projects in did not indicate a consistent level of EAP were reviewed during January-July 2011 attention to provisions for persons with with financial support from an ESSD Disability disabilities. and Development grant secured by HDNSP to � Implementation Stage: National or carry work under the general theme of international universal access guidelines do not appear to have been applied ‘Mainstreaming Disability’. The review consistently during implementation. A included 12 projects in China and two in reason may be the lack of resources for Vietnam (Lundebye et al, 2011). Of the carefully supervising contractors and the projects started between May 1998 and May overall implementation of the accessibility 2010: six were completed; five were under features. progress and three were just in the beginning of implementation and construction. All were The review did show an evolution over time substantial projects, with financing ranging with regard to the projects considering from US$43 to US$ 113 million. The universal design principles, with the more investments included road infrastructure, recent projects not only explicitly including traffic management schemes, and these considerations in project documents, but improvements of public transport facilities. All also making excellent use of public projects except one included improved consultations to enhance the effectiveness of facilities for pedestrians in one way or the project. another. LEGAL FRAMEWORKS FOR ACCESSIBILITY IN EAP The review aimed to assess the accessibility The study also included a review of the features of transport projects in the East Asia existing national legislation for ensuring the and Pacific region in order to highlight best accessibility of people with disabilities. This practice and to make recommendations for revealed that there is diversity among improving accessibility features in urban countries in terms of status of legislation in transport projects in the region and elsewhere. 5|Page TRN-44: Accessibility of Urban Transport for People with Disabilities and Limited Mobility - – Lessons from East Asia and the Pacific this area and in relation to transport accessibility outcomes. In a country where accessibility in particular. For example, the there is infrastructure that is rapidly building legal provisions for persons with disabilities in like in China, there are important lessons and Vietnam are currently being updated and a indications for good practice that emerge new Law for Persons with Disabilities (LPD) which are discussed in the next section. was passed in June 2010. The Ministry of Transport (MoT) is currently developing LESSONS ON URBAN TRANSPORT PROJECTS IN technical standards and guidelines to assist EAP transport agencies and professionals in the The review of EAP projects shows that implementation of the provisions of the law. accessibility is not yet a systematic concern in The MoT has commissioned two local the planning or implementation of urban universities to help develop the standards and transport infrastructure. On one hand, most of guidelines based on overseas experience. the projects included improvements in the sidewalks and pedestrian crossings that had China implemented in 1989 its first trial the potential to significantly transform the implementation of standards for the Design of accessibility landscape of the city. The Urban Roads and Buildings aimed at improvements included a broad range of improving the access of people with disability. features such as removal of obstacles from the In December 1990, the Law of the People's sidewalks, the creation of dropped cuts, ramps Republic of China on the Protection of People and tactile surface markings. An indirect with Disabilities was issued. It was further impact on disability is linked with project modified in 2008 to emphasize the need for improvements that help lower road traffic construction of barrier-free facilities for accidents such as the inclusion of prioritized people with disabilities. non-motorized traffic. More could have been National legislation has not been matched by done in many of these projects to fully take adequately detailed regulatory frameworks at advantage of these opportunities with the provincial and local level. There are no consistent attention to accessibility outcomes nationwide administrative regulations in during implementation. China for the barrier-free facilities yet. A Overall, the review has helped demonstrate review of practice across China – conducted as that knowledge on issues of accessibility in part of this study (Chen 2011), found that the transport among both clients and donors still incorporation of UD principles through the needs to be enhanced. Too often the Ministry of Construction Standards for street perception is that making urban transport design combined with political support from accessible will be costly and not as important the disabled community in the country led to in light of the many other development several examples of good practice. A number priorities relevant for economic growth. of provinces and cities like Beijing, Shanghai, However, as many examples of projects both Tianjin, Guangdong Province and the Liaoning in the Bank portfolio and outside it showed, Province have now started or enacted their there is no appreciable difference in cost own administrative regulations. between streetscapes that are fully accessible However, the lack of a consistent enforcement and those that are not – the difference is that mechanism has produced a tragic lack of of consistent attention and supervision. This consistency in achieving overall inclusive is readily confirmed by the broader literature 6|Page TRN-44: Accessibility of Urban Transport for People with Disabilities and Limited Mobility – Lessons from East Asia and the Pacific (Roberts and Babinard 2004). In this context RESOURCES AND MOVING FORWARD ON there may well be a role for specialized ACCESSIBLE TRANSPORT training on achieving accessibility outcomes There are many resources already available on for government officials as well as design and standards and features related to accessible supervision consultants. transport. This knowledge can be used by Additionally, the experience of China showed technical staff to develop their technical that even where a mechanism does not exist expertise about design features for people for regulating and enforcing accessible design with disabilities and for people with limited principles, significant positive impacts can be mobility. The review by Lundebye et al. also made by at least ensuring that accessible (2011) includes a series of checklists to ensure design principles are incorporated into standards and guidelines (simple and that accessibility is considered in designs. relatively inexpensive to achieve); and by These cover: (i) the pedestrian environment; organizing the disabled community and (ii) pedestrian crossings; (iii) pedestrian empowering them to participate in the tunnels and bridges; (iv) bus stops; and, (v) infrastructure development process. Good buses. An excerpt from the bus check list is practice in Bank projects in the region has shown below. By applying such checklists shown the benefits of putting the consultation during the design and approval stages of with the community at the center of the infrastructure planning and implementation transport projects, one can ensure that process (see box). accessibility needs are properly considered. THE KEY ROLE OF PUBLIC CONSULTATIONS A key lesson is that public consultations with people with disability during project preparation are essential to mainstream the accessibility features into the project preparation process and during implementation. There are some good practice examples of consultations that took place in the context of WB projects in Liaoning, Anhui, Kunming and Wuhan in China for example. Typically though, public consultations tend to be held only during the early stages of project preparation. We find that there are significant benefits from mainstreaming consultations into all stages of the project cycle. For example, in several cities participating in the World Bank Finally, in order to create accessible transport financed Liaoning Medium Cities Infrastructure environments there should be: Project, the Federation for the People with Disabilities of the city coordinated closely with � A review of national design standards for the project to bring people with disabilities to the different modes of transports; streets to “field test� issues and ensure proper � Awareness-raising among officials, identification of accessibility considerations in the design process. This experience was most planners and builders; and successful in the city of Jinzhou, where a decision � Involvement of representatives of people was made to make such a consultation an annual with disabilities in the planning and event. implementation process. 7|Page TRN-44: Accessibility of Urban Transport for People with Disabilities and Limited Mobility - – Lessons from East Asia and the Pacific Donors like the World Bank should support and promote improved accessibility. This can be done by: � Raising awareness of government counterparts and consultants to the importance of UD; � Supporting the adoption of appropriate design standards and guidelines; � Only clearing designs for bidding which have addressed UD principles; and � Providing support through training and other awareness raising activities. The key to achieving proper accessibility is through strong advocacy at the national and international level. Government oversight and interest is also important to produce quality public infrastructure and to provide the private sector with the appropriate incentives to use inclusive design principles when investing in privately financed public spaces such as shopping malls, offices and education facilities. 8|Page TRN-44: Accessibility of Urban Transport for People with Disabilities and Limited Mobility – Lessons from East Asia and the Pacific REFERENCES Peter Roberts and Julie Babinard. 2004. World Bank Transport Strategy to Improve Accessibility in Developing Countries. World Bank, Washington, DC. The document can be accessed through the following link: http://siteresources.worldbank.org/INTTSR/ Resources/accessibility-strategy.pdf DFID. 2006. Enhancing the Mobility of Disabled People: Guidelines for Practicioners. Lundebye, S., Svensson, H. and Dotson, E. (2011). Accessible Transport: Lessons from Urban Transport Projects from East Asia. Report to the World Bank, Washington, D.C. Wang (2012). Inclusive Mobility in China. Paper presented to Transportation Research Board Conference, Washington, D.C. World Bank 2008. Design for All: Implications for Bank operations. Harold Snider and Nazumi Takeda. Disability & Development, Social Protection & Labor, Human Development Network. Washington DC. October. World Bank. 2011. World Report on Disability. Joint World Health Organization (WHO), Geneva/ WB, Washington DC. For Further Information Julie Babinard, Environmental and Social Development Specialist (jbabinard@worldbank.org) Wei Wang, Junior Professional Associate (winniewang@worldbank.org) Christopher R. Bennett, Senior Transport Specialist(cbennett2@worldbank.org) Shomik Mehdiratta, Lead Urban Transport Specialist(smehndiratta@worldbank.org) World Bank Transport website: http://www.worldbank.org/responsibletrans port 9|Page