Highway Code: hierarchy of road users, pedestrians, cyclists, horses and motorcyclists

The Highway Code was updated on 29 January 2022 with a new "hierarchy of road users". The rules put the people most at risk at the top of the hierarchy and give the greatest responsibility to drivers who can cause the greatest harm. Taxi and private hire drivers are named in these rules, so council knowledge tests often ask about them. This note covers Rules H1 to H3, pedestrian crossings, and how to pass cyclists, horse riders, motorcyclists and other vulnerable people safely.

The hierarchy of road users (Rules H1 to H3)

Rule H1 explains the idea. The road users most likely to be injured in a collision are pedestrians, cyclists, horse riders and motorcyclists. Children, older adults and disabled people are at even greater risk. Rule H1 states that those in charge of vehicles that can cause the greatest harm "bear the greatest responsibility to take care and reduce the danger they pose to others". This applies most strongly to drivers of large goods and passenger vehicles, vans and minibuses, cars and taxis, and motorcycles.

Rule	Who it applies to	Main point
H1	All road users	Those who can cause the greatest harm have the greatest responsibility to reduce danger
H2	Drivers, motorcyclists, horse drawn vehicles, horse riders and cyclists	Give way to pedestrians crossing or waiting to cross at junctions and crossings
H3	Drivers and motorcyclists	Do not cut across cyclists, horse riders or horse drawn vehicles going ahead when you turn or change lane

Key points from Rules H2 and H3:

• At a junction, you should give way to pedestrians crossing or waiting to cross a road into which or from which you are turning (Rule H2).
• You MUST give way to pedestrians on a zebra crossing, and to pedestrians and cyclists on a parallel crossing (Rule H2).
• Pedestrians have priority at light-controlled crossings when they have a green signal (Rule H2).
• Only pedestrians may use the pavement. "Pedestrians" includes wheelchair and mobility scooter users (Rule H2).
• Do not turn at a junction if doing so would make a cyclist, horse rider or horse drawn vehicle going ahead stop or swerve. You should stop and wait for a safe gap (Rule H3).
• Rule H3 applies whether the cyclist is using a cycle lane, a cycle track or riding on the road.

Key fact: Remember that people you meet may have impaired sight, hearing or mobility, and this may not be obvious (Rule H1).

Pedestrian crossings (Rules 19 to 30 and 191 to 199)

Council tests often ask you to tell crossings apart. Learn this table:

Crossing	Who uses it	Key rules for drivers
Zebra (Rules 19-20, 195)	Pedestrians	Flashing beacons. Give way to people waiting; you MUST give way when someone has moved onto the crossing. A zebra with a central island is two separate crossings
Parallel (Rule 195)	Pedestrians and cyclists	Like a zebra, but with a cycle route alongside the black and white stripes. You MUST give way when a pedestrian or cyclist has moved onto it
Pelican (Rules 22, 196-197)	Pedestrians, push-button	Red light means you MUST stop. Flashing amber means you MUST give way to anyone on the crossing; if it is clear you may proceed with caution. A pelican straight across the road is one crossing, even with a central island
Puffin (Rules 23, 199)	Pedestrians, push-button	Red and green figures are above the control box on your side of the road. There is no flashing green figure and no flashing amber for drivers; the light sequence is the same as at traffic lights
Toucan (Rules 25, 199)	Pedestrians and cyclists together	Cyclists are permitted to ride across. Push-button operated; both see the green signal together
Equestrian (Rules 27, 199)	Horse riders	Wider crossing space, pavement barriers, horse and rider figures in the light panels, and a higher control panel. There is often a parallel crossing alongside

Extra rules that apply at all crossings:

• You MUST NOT park on a crossing or in the area covered by the zig-zag lines. You MUST NOT overtake the moving vehicle nearest the crossing, or the vehicle nearest the crossing that has stopped to let people cross (Rule 191).
• In queuing traffic, keep crossings completely clear, and do not block the advanced stop lines for cycles (Rule 192).
• Give way to anyone still crossing after the vehicle signal has changed to green (Rule 198).
• Allow pedestrians plenty of time to cross. Do not harass them by revving your engine or edging forward (Rule 194).
• Do not wave, flash your lights or sound your horn to invite pedestrians across; this could be dangerous if another vehicle is approaching (Rule 195).

Cyclists (Rules 163, 212, 213 and H3)

• When overtaking cyclists at speeds of up to 30 mph, leave at least 1.5 metres. Give more space at higher speeds (Rule 163).
• If you cannot meet these clearances, wait behind the cyclist instead of overtaking (Rule 163).
• Give cyclists at least as much room as you would when overtaking a car, and take extra care in bad weather (including high winds) and at night (Rules 163 and 212).
• If a rider looks over their shoulder, they may be about to pull out or turn. Give them time and space (Rule 212).
• On narrow roads, at junctions and in slow traffic, cyclists may ride in the centre of the lane, and groups may ride two abreast. Allow this for their safety (Rule 213).
• Rule 239 asks drivers to open their door using the hand on the opposite side to the door being opened, for example the left hand for a door on the right. This is often called the "Dutch reach". It turns your head so you look over your shoulder, and you are then more likely to avoid causing injury to cyclists or motorcyclists passing you.

Key fact: 1.5 metres is the minimum passing distance for cyclists at up to 30 mph (Rule 163). For horses it is 2 metres at no more than 10 mph (Rule 215).

Motorcyclists (Rules 211 and 212)

Motorcyclists and cyclists are often difficult to see, especially when waiting alongside you, coming up from behind, or moving off from junctions. Always look out for them before you emerge; they could be approaching faster than you think (Rule 211). When turning right across slow-moving traffic, look out for and give way to cyclists or motorcyclists on the inside of the traffic you are crossing (Rule 211).

Horse riders and horse-drawn vehicles (Rules 214 and 215)

• When you see a horse on a road, slow down to a maximum of 10 mph (Rule 215).
• When it is safe, pass wide and slow, allowing at least 2 metres of space (Rule 215).
• Be patient. Do not sound your horn or rev your engine near horses (Rules 214-215).
• Horse riders are often children. Riders may ride in double file when escorting a young or inexperienced horse or rider (Rule 215).
• Feral or semi-feral ponies in areas such as the New Forest, Exmoor and Dartmoor need the same consideration as ridden horses (Rule 215).
• If a road is blocked by a herd of animals, stop and switch off your engine until they have left the road (Rule 214).

Older, disabled and child pedestrians (Rules 205 to 209)

• Children and older pedestrians may not be able to judge your speed and could step into the road in front of you (Rule 207).
• Rule 207 gives two stark figures: "At 40 mph (64 km/h) your vehicle will probably kill any pedestrians it hits. At 20 mph (32 km/h) there is only a 1 in 20 chance of the pedestrian being killed."
• Older pedestrians may need more time to cross. Be patient and do not hurry them by revving or edging forward (Rule 207).
• Blind or partially sighted people may carry a white cane or use a guide dog. Deafblind people may carry a white cane with a red band, or use a dog with a red-and-white harness (Rule 207).
• Drive carefully and slowly past parked vehicles, especially ice cream vans, and past bus and tram stops, because people may step out suddenly (Rule 206).
• A flashing amber signal below a "School" warning sign means children may be crossing ahead. Drive very slowly until clear of the area (Rule 208).

School crossing patrols (Rules 105 and 210)

You MUST stop when a school crossing patrol shows a "Stop for children" sign (Rule 210). Rule 105 also states that you MUST obey signs used by school crossing patrols, as well as signals given by police officers, traffic officers and traffic wardens. Pedestrians should always cross in front of the patrol (Rule 29).

Buses and trams (Rules 223 and 224)

Give priority to buses, coaches and trams when you can do so safely, especially when they signal to pull away from stops (Rule 223). Look out for people getting off a bus or tram and crossing the road. Trams move quickly but silently, and they cannot steer to avoid you (Rule 224). Always give priority to trams pulling away from stops, unless it would be unsafe (Rule 305).

Scenario: turning left into a side road

You are turning left into a side road. A woman with a pushchair is waiting at the corner to cross the side road. Rule H2 says you should give way to pedestrians crossing or waiting to cross a road into which you are turning. Wait before you turn and let her cross first. This applies whether you are turning left or right.

Scenario: a horse rider on a narrow country lane

On a narrow lane you come up behind a horse rider. You cannot pass with 2 metres of space, so Rule 215 and Rule 163 say you should wait behind. Slow down, keep well back, and do not sound your horn or rev your engine. Pass only when there is room to leave at least 2 metres, at no more than 10 mph.

Scenario: dropping off and opening your door

You stop on the kerb side to drop off a fare. Before opening your door, check all around for cyclists and motorcyclists. Use the opposite hand to open the door (Rule 239). Your head turns, you see over your shoulder, and you are less likely to injure someone passing.

Quick check

• At what maximum speed should you pass a horse, and with how much space? (10 mph and at least 2 metres, Rule 215)
• How much room must you leave when overtaking a cyclist at up to 30 mph? (At least 1.5 metres, Rule 163)
• At a pelican crossing, the amber light is flashing and a pedestrian is on the crossing. What must you do? (Give way to the pedestrian, Rule 196)
• At which light-controlled crossing may cyclists ride across? (A toucan crossing, Rule 25)
• A zebra crossing has a central island. Is it one crossing or two? (Two separate crossings, Rule 20)

Exam tips

• Learn the three H rules by number: H1 responsibility, H2 pedestrians at junctions and crossings, H3 not cutting across cyclists and horse riders.
• Know the exact figures: 1.5 metres for cyclists at up to 30 mph; 2 metres and 10 mph maximum for horses.
• MUST and MUST NOT in the Code mark legal requirements. Breaking them is a criminal offence that can lead to a fine, penalty points or disqualification.
• Practise telling the crossings apart by their features: beacons (zebra), flashing amber (pelican), near-side signals (puffin), cyclists riding across (toucan), horse figures (equestrian).
• Never wave or flash your lights to invite pedestrians across a crossing (Rule 195).
• Remember that taxi drivers are named in Rule H1 as a group with high responsibility.

Contains public sector information licensed under the Open Government Licence v3.0.