I will add as a narrowboater.
I found towpaths also have this issue with definition of surface.
I am legally blind. (Some vision but bad)
I have a few times tried to add more ditail to areas of towpath that will help the others like me know what to expect before mooring.
Seems anything that improves this will help in your issues as well.
Very Much this ^.
All fines do is force too poor to walk when they cannot afford the fine or other options. If that is the goal, free/cheap access to pools and sports centres as we had in the 70s was a better solution.
If the goal is to stop driving. Points on the licence. And providing practical alternatives.