National English Concession
Disability Guidance for Local Authorities
"(a) is blind or partially sighted"
33 'Blind' means having a high degree of vision loss i.e. seeing much less than is
normal or perhaps nothing at all. 'Partially sighted' is a less severe loss of vision.
Partially sighted people can see more than someone who is blind, but less than a fully
sighted person. Blind and partially sighted people can register with their local council.
The register is held by the social services or social work department, or by a local
voluntary agency, and is confidential.
34 For registration purposes, the term ‘blind’ now becomes ‘severely sight impaired
(blind)’ and partially sighted becomes ‘sight impaired (partially sighted)”. The formal
notification required to register as “severely sight impaired” or “sight impaired” is a
Certificate of Vision Impairment (CVI), signed by a Consultant Ophthalmologist (eye
specialist). However, registration is voluntary. The individual should have a copy of their
CVI and should be encouraged to register, if they have not already done so, as they
may be entitled to various other benefits too.
35 In general terms a person can be registered as severely sight impaired (blind) if they
cannot see (with glasses, if worn) the top letter of the eye test chart (used by doctors
and opticians) at a distance of 3 metres or less. Some people who can read the top
letter of an eye test chart at 3 metres, but not at 6 metres, may still be eligible for
registration as blind if their field of vision is also severely restricted. Only being able to
read the top letter at 3 metres is sometimes referred to as 3/60 vision: the person can
see at 3 metres what a person with normal vision can see at 60 metres.
36 A person can be registered as sight impaired (partially sighted) if they have a fullfield
of vision but can only read the top letter of the eye test chart at a distance of 6 metres or
less (with glasses, if worn). However, if they can read the next three lines down at the
same distance, but the field of vision is either moderately or severely restricted, they
may still qualify for registration.
37 The Department advises that concessionary travel passes should be issued to
people whose sight is so impaired that they would be able to register as severely sight
impaired (blind) or sight impaired (partially sighted). Local authorities may, where a
person is not on the local authority register, require evidence from an eye specialist, for
example an optometrist, that the applicant would qualify to be registered as severely
sight impaired (blind) or sight impaired (partially sighted). Advice on how to register can
be found on the Royal National Institute for the Blind (RNIB) website at:
http://www.rnib.org.uk/xpedio/groups/public/documents/publicwebsite/public_registration
_home.hcsp
"(b) is profoundly or severely deaf"
38 Hearing loss is measured in decibels across the normal hearing spectrum, as dBHL
(Hearing Level). People are generally regarded as having a severe hearing loss if it
reaches 70-95 dBHL and a profound loss if it reaches 95+ dBHL. The Department
advises that the statutory minimum concession should be made available to people in
these categories.
39 There is no statutory registration system for deaf people. However, many will be
registered on a voluntary basis with their local authority social services department. The
register is open to people who have varying degrees of hearing loss, so in checking the
register a local authority is advised to check that the applicant is profoundly or severely
deaf before issuing a national concession bus pass.
40 As in the case of blind and partially sighted people, local authorities may, where
appropriate, require applicants to provide evidence of registration before issuing a pass,
or evidence that they could register, for example, an audiological report, or a report from
an aural specialist.
"(c) is without speech"
41 Included within this category are people who are unable to communicate orally in
any language. Those people will be: unable to make clear basic oral requests e.g. to
ask for a particular destination or fare; unable to ask specific questions to clarify
instructions e.g. 'Does this bus go to the High Street?'
42 This category would not, in the Department's opinion, cover people who are able to
communicate orally but whose speech may be slow or difficult to understand, for
example because of a severe stammer.
43 In considering an application on these grounds the local authority may reasonably
require medical evidence to support the application in appropriate cases.
"(d) has a disability, or has suffered an injury, which has a substantial and long-term
adverse effect on their ability to walk"
44 To qualify under this category, a person would have to have a long term and
substantial disability that means they cannot walk or which makes walking very difficult.
45 It is envisaged that passes will be issued to people who can only walk with excessive
labour and at an extremely slow pace or with excessive pain. Their degree of
impairment should be at comparable level to that required to claim the Higher Rate
Mobility Component of Disability Living Allowance. This is set out below:
(i) they cannot walk or…
Being unable to walk means that they cannot take a single step. They need to show that
because of their disability they cannot put one foot in front of the other. Walking
involves always having one foot on the ground. If their only way of getting about is to
swing through crutches then they will be considered unable to walk.
(ii) …they are virtually unable to walk, or…
They will need to show that, as a result of a physical disability, they are unable to walk
very far without experiencing severe discomfort. This question does not apply to people
with mental disabilities, your inability to walk very far must stem from a physical
condition.
The Department for Works and Pensions take a number of factors into account when
deciding whether or not someone meets this criterion. For example:
Discomfort can mean either pain or breathlessness. Extreme fatigue and stress may
also be taken into account. It has been accepted that discomfort is subjective and that
some people have higher pain thresholds than others. Unless both legs are missing
then they will need to show that they experience severe discomfort even when using an
artificial aid. When deciding whether they are virtually unable to walk the following
factors should be taken into account:
• the distance over which they can walk without experiencing severe discomfort
• the speed at which they can walk
• the length of time for which they can walk
• the manner in which they can walk
If they can only walk up to 27 metres without severe discomfort then they will qualify for
the higher rate. If they can only walk between 27 and 64 metres without severe
discomfort then it is likely that they will qualify for the higher rate. If they can walk more
than 64 metres without severe discomfort then they will need to show that the other
three factors mean that they are virtually unable to walk. For example, if they can show
that it takes them five minutes to walk 100 metres, they should qualify for the higher
rate.
As a guide, the average person can walk the following in a minute:
• 90 metres at a brisk pace
• 60-70 metres at a moderate speed
• 40-50 metres at a slow pace
• 30-40 at a very slow pace
It does not matter whether the severe discomfort occurs at the time of their walk or later.
What counts is that the discomfort is a direct result of their attempt to walk.
(iii) The exertion required to walk would "constitute a danger to their life or would
be likely to lead to a serious deterioration in their health"
The test here is whether the exertion required to walk would constitute a danger to their
life or whether it would be likely to lead to a serious deterioration in their health. They
need to show that they should not walk very far because of the danger to their health.
This criterion is intended for people with serious chest, lung or heart conditions. Some
people with haemophilia may also qualify for the higher rate in this way. The serious
deterioration does not need to be permanent but it should require medical intervention
for them to recover. They will need to show that any danger to their health is a direct
result of the physical effort required to walk. People with epilepsy will need to show that
any fits were brought about by the effort required to walk
46 In all cases, entitlement depends on the applicant's difficulty in walking and
considerations, such as difficulty in carrying parcels, are not to be taken into account.
47 The fact that a walking aid is or is not used may be relevant to the eventual decision,
but these alone should not determine whether or not a person qualifies. For example, if
a person can walk relatively normally with the use of an artificial leg, then they should
not be considered eligible. Alternatively, a person who can only swing through on
crutches could be considered eligible, as they would be seen as having considerable
difficulty walking (provided it is due to a long term disability and not due to legs being in
plaster).
48 The Department advises that the authority should normally require medical evidence
to support the claim that the applicant's walking ability is long term and substantially
impaired.
"(e) does not have arms or has long-term loss of the use of both arms"
49 This category includes people with a limb reduction deficiency of both arms; bilateral
upper limb amputation; muscular dystrophy; spinal cord injury; motor neurone disease;
or a condition of comparable severity.
50 In the Department's opinion, it also covers both people with deformity of both arms,
and people who have both arms, if in either case they are unable to use them to carry
out day-to-day tasks, for example, paying coins into a fare machine. In these latter
cases the Department advises that a local authority should normally require
independent medical evidence to support the application.
"(f) has a learning disability, that is, a state of arrested or incomplete development of
mind which includes significant impairment of intelligence and social functioning"
51 A person with a learning disability has a reduced ability to understand new or
complex information, a difficulty in learning new skills, and may be unable to cope
independently. These disabilities must have started before adulthood and have a lasting
effect on development. The person should be able to qualify for specialist services and
he or she may have had special educational provision.
52 The Department of Health adopted the term 'learning disability' in 1992. It has the
same meaning as its predecessor 'mental handicap' but it is seen as more acceptable,
particularly in reducing the confusion with mental illness.
53 In determining eligibility in a case where there has been no previous contact with
specialist services a local authority should normally require independent medical advice,
or check any register of people with learning disabilities which might be held by the
Social Services Department of the applicant's local council.
"(g) would, if he applied for the grant of a licence to drive a motor vehicle under Part III
of the Road Traffic Act 1988, have his application refused pursuant to section 92 of the
Act (physical fitness) otherwise than on the ground of persistent misuse of drugs or
alcohol."
54 Under Section 92 of the Road Traffic Act 1988 the Secretary of State may refuse to
issue a driving licence on the grounds of the applicant's medical fitness. Those who are
currently barred from holding a licence are people with:
i. epilepsy (unless it is of a type which does not pose a danger - see below);
ii. severe mental disorder;
iii liability to sudden attacks of giddiness or fainting (whether as a result of cardiac
disorder or otherwise);
iv. inability to read a registration plate in good light at 20.5 metres (with lenses if worn);
v. other disabilities which are likely to cause the driving of vehicles by them to be a
source of danger to the public.
55 It will be seen that specific reference is made to people who
persistently misuse
drugs or alcohol. Those people are not covered by the definition of 'disabled person'
under the Act and are thus not entitled to the statutory minimum travel concession.
56 It is not a condition of entitlement under this category that the disabled person should
apply for and be refused a driving licence (which would be unduly burdensome for
everyone involved). If, for people with any of the disabilities (ii) - (iv) listed above, the
local authority can be confident that a licence would be refused it should therefore be
able to issue the travel pass automatically. For (i) epilepsy - the bar is not automatic and
depends on the circumstances.
57 The Motor Vehicles (Driving Licences) Regulations 1999 permit the grant of a driving
licence to a person with epilepsy if that person:
(a) has not had an epileptic attack whilst awake for a year or more; or
(b) has a history of attacks whilst asleep, and only whilst asleep, over the past three
years or more, provided that the driving of a vehicle by that person is not likely to cause
danger to the public.
58 There are a number of categories of "severe mental disorder" under which people
may qualify. Authorities will need to assess individuals on a case-by-case basis as
eligibility may depend on the severity of the condition. Such conditions include (but are
not limited to) dementia (or any organic brain syndrome); behaviour disorders (including
post head injury syndrome and Non-Epileptic Seizure Disorder); and personality
disorders.
59 Other groups include:
• People with restricted visual fields, who will be refused a licence if they do not have a
horizontal field of vision of at least 120 degrees, or if they have significant scotoma
encroaching within 20 degrees of the central fixation point in any meridian or,
sometimes, if they have restricted vertical fields of vision;
• Insulin dependent diabetics. In general people with insulin dependent diabetes can
continue to drive - though their licence may be renewable on a 1, 2, or 3-yearly basis.
However, where the person experiences disabling hypoglycaemia they will be
prevented from driving until their diabetes is controlled.
