Southampton’s streets offer a ready-made snapshot of a policy dilemma that has stretched since 2021: e-scooters, whether rented or privately owned, have become a fixture of urban mobility even as regulators hem and haw over how to govern them. In this port city and in countless others across England, rental e-scooters are visible on a daily basis, parked in designated spaces, riding along streets, and sometimes sharing sidewalks. The government-backed trials have provided an evidentiary backbone for decision-making, yet six years after they began, ministers have yet to settle on a framework that would legalise and regulate private ownership and permanently deploy hired schemes. The gap between lived experience and regulation has created a regulatory limbo that officials in Scotland and Wales say they are waiting for Westminster to resolve.
In Southampton, people describe the devices as a practical link between home and train stations. Keith Reed, a user who rides a rental e-scooter to reach the rail network, frames the device as a quick, convenient option for short trips. For many residents, the scooter complements other modes rather than replacing them, an observation echoed by transport researchers who describe the devices as best suited for first- and last-mile journeys in urban areas where range, weather, and infrastructure constrain longer trips. The ongoing trials, which began in 2021, have produced a wealth of real-world data about usage patterns, but the central question remains: should these devices be legalised for public-road use, and under what standards for safety, insurance, and enforcement?
The Department for Transport (DfT) defines e-scooters used in trials as devices with no pedals, two wheels, and a maximum continuous power rating of 500W. The data collected from 2022 through May 2024 show substantial activity: 36.9 million trips across 30 trial areas outside London, and an average daily availability of about 19,500 hire scooters. Dr Yasir Ali of Loughborough University and other researchers describe e-scooters as complementary to public transport, filling gaps for short trips and aiding “first- and last-mile” connectivity, while acknowledging limitations in weather, range, and infrastructure that hinder longer journeys. The evidence suggests most trips are short, urban-focused, and often paired with other modes of travel, such as rail connections to neighbourhoods and towns.
The trials have also highlighted how e-scooters fit into a broader mobility ecosystem. The CoMoUK 2025 report indicates that for more than half of rental e-scooter users, the primary use is commuting to work or school, while the majority of hired-scooter users are male and under 35. Yet the data do not capture privately owned devices fully; ownership estimates suggest between 760,000 and 1.2 million people in England aged 16 and over own a scooter, despite the legal status that prohibits riding on public roads outside trials. This discrepancy underlines the tension between the popularity of the technology and the gaps in the regulatory framework. In practice, private scooters operate in a legal gray area: insured only when used on private land with permission, but with little or no protection for riders in traffic or when involved in collisions.
Public perceptions reflect a mix of convenience and concern. Some pedestrians describe scooters as a nuisance in busy streets, while others praise their ability to reduce car use for short trips. Enforcement challenges persist. Police report daily encounters with illegal riding of private e-scooters in public spaces, and officers describe practical difficulties in intercepting riders in traffic. Enforcement agencies also grapple with the fact that private devices often lack registration or insurance, complicating penalties and accountability. A common refrain from residents and family members affected by crashes is that the devices should be used safely and legally, with clear penalties for illegal riding and safety restrictions such as helmet use and passenger limits for any future regulation.
Safety remains a central concern. Trials regulate top speed, typically capping many devices at 12.5 mph, and emphasize rules such as helmet use, licensing requirements for riders, and restrictions against pavement riding. However, privately owned scooters can exceed these limits, increasing safety risks. The potential for battery fires, particularly with unregulated lithium-ion cells, raises concerns about transport network safety and railway and aviation compliance, prompting many train operators to ban e-scooters on board. Coroners and safety advocates have highlighted the risk of injuries, including severe outcomes among younger riders. A 2024 England-Scotland-Wales casualty tally shows 1,390 people were injured in collisions involving e-scooters, three more than the prior year, with the majority of injuries sustained by the riders themselves. Among the casualties, 302 cases involved males aged 10-19—the most numerous demographic—while six deaths were recorded, five among riders and one pedestrian. The scale of injuries has intensified calls for regulation that explicitly addresses safety standards, training, and enforcement.
Despite the evident safety concerns, decisive action has stalled. The last formal evaluation of the English trials occurred in 2022. New findings are anticipated in early next year, but the delay has already bred a gap between law and practice. The Scottish Government has urged the UK government to act on registration and licensing powers over off-road vehicles, and Wales has signaled a willingness to monitor developments and consider implications for its own policies. Northern Ireland’s Department for Infrastructure is watching England’s progress and the Republic of Ireland’s recent regulatory shifts for context. DfT officials say the trials are building the real-world evidence needed to chart regulation and that a broader framework—encompassing registration, licensing, and other requirements—will be consulted on within the next year.
The human and community impacts extend beyond the road. A subscriber to the mobility ecosystem who bought a privately owned scooter recounted learning only after purchase that riding on public roads was illegal. The regulatory lag has also spurred commentary from advocates who view scooters as a low-carbon, low-cost, and potentially transformative mode of transport, provided that governance keeps pace with usage. CoMoUK’s leadership argues that while there is value in making e-scooters a mainstream option for urban travel, the absence of clear, enforceable rules limits the realization of their benefits. Analysts and policymakers acknowledge the tension between the rapid growth of e-scooter use and the slow pace of legislative action, with some suggesting that the current “halfway house” of regulation is increasingly untenable as usage expands.
The European experience adds another layer to the discussion. Paris moved to end its shared e-scooter schemes following a 2023 referendum, and Brussels has signaled a wind-down by 2027 amid rising safety concerns. While the UK contemplates broader rules, the timing and design of any future framework will influence urban mobility, street design, insurance markets, and policing priorities. The Scottish Government emphasizes continued advocacy for action by the UK government, and the Welsh Government is ready to adapt to new legal norms. Officials stress that the goal is to realise the potential of e-scooters to improve local connectivity and cut emissions while ensuring safe and responsible use across the country.
With evidence continuing to accumulate from ongoing trials, observers await a long-awaited decision on legalisation and regulation. The next steps include formal consultation on longer-term rules, including registration and licensing requirements, with the aim of aligning law with practical realities on the ground. The landscape remains unsettled, but the case for regulated e-scooter use—balanced against safety, enforcement, and consumer protections—has become increasingly difficult to argue against in the face of rising injuries and a public longing for clearer norms.
