Mountain rescue and footpath representation

1. Over the last decade, in Britain there has been a marked increase in mountain rescue activity (reported by the national media, as well as the climbing and walking magazines). Most of these ‘extra’ call outs are due to incompetents misadventuring. OS maps have a well deserved reputation for being the world's best and most clear.

(a) However, has OS considered how this reputation may lead some people to feel a false sense of security by simply carrying such maps, rather than really knowing how to use them?

(b) How would OS defend against a suggestion that by ‘dumbing down’ the accessibility of its mapping (by presenting a focus on footpath representation rather than on topography and representations of objective dangers) it may actually be contributing to the sharp rise in mountain rescue call outs? or, to phrase it more seriously, that OS is lapsing in its duty of care towards people who have not been trained or informed enough regarding the use of maps in mountainous country?

(c) All climbing equipment comes with distinct warnings about how it is essential to understand how that equipment should be used – would OS consider making such a distinct warning regarding the mountain equipment that it produces?

(d) How does OS respond to the suggestion that it would’ve been wiser to have raised awareness about navigation, and to have started a campaign to improve map reading skills rather than make it ‘look easier’ on the map?

(e) Bearing in mind the absurdity of Britain’s growing blame-culture, has OS carried out any legal analysis regarding its liability should a case be brought against it on the grounds of a misleading representation of potentially dangerous ground?

(Please bear in mind, I present this question as an ally, and that I despise the present blame-culture and the growing lack of self-reliance it engenders, and would be disgusted should such a case ever be brought.)

2. Regarding footpath representation.

(a) Often footpaths represented by black perforated lines on OS maps, which are meant to represent footpaths on the ground, are not actually apparent on the ground. Often footpaths on the ground are not represented at all on OS 1:25 000 maps. I have accepted these errors matter of factly having been taught that mapping cannot always be accurate. However, by emphasising footpaths over rock features surely OS is in danger of giving ill-informed navigators the impression that representations of footpaths can be relied on?

(b) There is much confusion about green perforated lines which only represent rights of way rather than actual footpaths on the ground. Would OS consider highlighting this fact and presenting a distinct warning on their maps about this, even at the expense of putting off some people from buying their maps and venturing into the hills?

3. Regarding complaints from your customers.

(a) As far as possible, since OS began, how many maps has it sold?

(b) Since OS maps were first produced, exactly how many customers, and in what periods, have made complaints regarding the ease of following footpaths in relation to the so called ‘ornament’ of sharp black crag symbols?

(c) As far as possible, please tell me what kind of map users these customers were? For example, do you know if they were mountaineers, mountain walkers, ramblers, or dog walkers?

(d) Please give me a range of the content of these complaints – What exactly did people complain about?

(e) Exactly how many complaints have you received about the faintness of the crag symbols?

(f) For how many years have OS been using sharp black crag symbols?

(g) Did OS undertake a comprehensive public consultation regarding crag symbols?

(h) Who did OS consult – how many, what age-groups, and from where?

(i) Why did I miss out on being consulted?

I saw no advertising or information relating to this change, despite my subscribing to the BMC and being part of networks that could’ve easily conveyed and broadcast such information.

Thank you for your letter dated 17^th March 2010.We are pleased to provide you with the following information, and respond to each of your questions in turn:

1a. Ordnance Survey actively supports education on map reading and our website contains many resources on the subject, all of which can be found on the “education” tab: http://www.ordnancesurvey.co.uk/oswebsite/education/ 

These include:

• Map reading leaflets, although primarily aimed at children they are perfectly useable by all ages; we also have a comprehensive brochure on map reading aimed at all levels that we distribute at events (see comments below).
• Advice on how to read the national grid.
• Map symbol sheets and flashcard game.
• Mapzone – an on-line interactive educational application.

Although we make information available, it is not within the remit of Ordnance Survey to teach users how to navigate with maps.  

1b.  User safety is one of Ordnance Survey’s prime concerns along with ensuring that we provide accurate and up to date information. Ordnance Survey reviews the specification of our consumer maps on a regular basis to ensure that the information continues to meet user needs. The rock depiction colour change to grey, to which I believe you are alluding here, was changed in response to customer feedback that it was difficult to see paths in areas of heavy rock.

1c.  The text on the inside cover of all OS Explorer Maps includes the note: “For your own safety, please also follow appropriate safety precautions when enjoying the outdoors and obey the law”.1d.  In addition to the information mentioned in 1a), Ordnance Survey does much to raise awareness of navigational skills.

We are currently running map reading workshops at Cotswold Outdoor stores around the country. Last year we attended the Keswick Mountain Festival and Cliffhanger 2009 where we distributed map reading booklets. We have in the past invited outdoor skills experts to give talks and provide training sessions at events such as the Outdoor Show and World Scout Jamboree.

1e.  Ordnance Survey maps carry a legal disclaimer: ‘Whilst we have endeavoured to ensure that the information in this product is accurate, we cannot guarantee that it is free from errors and omissions, in particular in relation to information sourced from third parties’.

2a. In common with all features we accept that paths can become out of date or be wrongly depicted, however this does not detract from our reason for changing the depiction of rock features. Instead we investigate such errors when we become aware of them and make any necessary corrections. I would reiterate here that the rock depiction was toned down as it is representational, whereas footpaths are specific individual features and the aim was to differentiate the two rather than hide one of them.

2b. We have two statements on our map legend:

“Public rights of way shown on this map have been taken from local authority definitive maps and later amendments. This map includes changes notified to Ordnance Survey by (date). Rights of Way are liable to change and may not be clearly defined on the ground. Please check with the relevant local authority for the latest information.”

and

“The representation on this map of any other road, track or path is not evidence of the existence of a right of way”; which has been on the map for many years.

3a.  I regret to inform you that Ordnance Survey does not hold this information, mainly because over the years the systems for recording this detail have changed. However, we can advise that we currently sell in the region of 2.25 million paper maps per year.

3b.  I regret to inform you that Ordnance Survey does not hold this information; again the systems used to record customer complaints have changed over the years. However, we are able to advise that since 1^st April 2005 we have received four complaints in relation to crag symbols.

3c.  I regret to inform you that Ordnance Survey does not hold this information. The system currently used to record the detail of a complaint does not specify the kind of map user.

3d.  Two of the four complaints are from yourself, and are in relation to the change in colour of crag symbols. Of the two remaining complaints, one was with regard to the depiction of rocks and crags in relation to colour blindness and the second was a complaint that the crags aren’t shown clearly enough.

3e.  I regret to inform you that Ordnance Survey does not hold this information. As stated above, we are only able to advise on complaints since 1^st April 2005 due to the current recording process.

3f.  I regret to inform you that Ordnance Survey does not hold this information, as we no longer have a historic map archive, and the only evidence of the change would be the maps themselves. We believe black rock was probably in place when the product was first created in the mid 1960s.

3g.  As already mentioned, Ordnance Survey did consult groups around the country when we were researching requirements for a new OS Explorer Map specification, in 2002-3. Respondents included map users and individuals with an interest in, or working within the outdoor leisure industry.  This consultation exercise was focussed on the whole specification of the map, rather than any individual element, although rock depiction was discussed during these sessions.

We also canvassed opinions of the public at the Outdoor Show, as well as field testing at events in popular outdoor locations. This would have included anyone who was willing to take part at these events, but we do not have any records of the demographics of participants.

3i. Had you attended some of the events previously mentioned, you would have had the opportunity to feedback your views.  As this was considered a limited change, it really would not have been appropriate to undertake a wider consultation.

Please note that your enquiry has been processed to Freedom of Information guidelines.  As all requested information has been provided, we have determined that in all the circumstances of this case the Public interest consideration (section 17 FOIA) is not applicable in this instance.

If you are unhappy with our response, you may raise an appeal to our Appeals Officer at:

Complaints Team

Customer Service Centre

Ordnance Survey

Romsey Road

SOUTHAMPTON

SO16 4GU 

Please include the reference number below. The Appeals Officer will ensure that the process has been followed correctly, questioning any decisions taken regarding the original response and recommending disclosure of additional information if appropriate.

Thank you for your enquiry.

Reference number: FOI1055/March 2010