Framework for a National Strategy on Highway Safety

Transcription

1 Second Draft Framework for a National Strategy on Highway Safety Prepared for NCHRP February 29, 2012

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3 Contents Section Page Acronyms and Abbreviations... vii Chapter 1: Introduction... 1 Introduction the Need for Toward Zero Deaths... 1 Toward Zero Deaths... 2 Overview of the TZD Initiative... 3 Audience for the Framework... 3 Supporting Documentation... 4 Fundamentals Underlying the Framework and Its Use... 4 How to Use the Framework... 4 Chapter 2 Background... 7 Background on the Scope of the Problem... 7 Some Perspectives on History... 7 Highway Fatalities in the Present Day... 8 Important Trends to Consider... 9 Demographic Trends... 9 Travel Demand Trends and Characteristics... 9 Emergent Trends Motorcycle Fatalities A Way Forward Roadmaps for Success International Experience State Experience Lessons Learned for the TZD Initiative Chapter 3 Safety Culture The Need for Safety Culture Change Approaches to selecting strategies to drive safety culture change Barriers to Safety Culture Change Research as a Key Component of Achieving Safety Culture Change Role of Public Health Change Safety Culture of Users Potential Strategies to Change Safety Culture of Users Change Safety Culture of Institutions Characteristics of a TZD Safety Culture in Institutions Senior Management Support Chapter 4 TZD Emphasis Areas Drivers, Passengers and Vulnerable Users Eliminate Impaired Driving Fatalities Eliminate Distracted Driving Fatalities ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY III

4 CONTENTS, CONTINUED Section Page Eliminate Aggressive Driving and Speeding Related Fatalities Eliminate Fatalities in Crashes Involving Teen Drivers Eliminate Fatalities in Crashes Involving Older Drivers Increase Restraint Use Eliminate Pedestrian Fatalities Eliminate Bicyclist Fatalities Eliminate Motorcyclist Fatalities Eliminate Fatalities in Crashes Involving Unlicensed Drivers and Drivers with Suspended or Revoked Licenses Collision Types Eliminate Lane Departure Fatalities Eliminate Intersection Fatalities Eliminate Head On Collision Fatalities Eliminate Fixed Object Fatalities Eliminate Work Zone Fatalities Infrastructure Related Emphasis Areas Enhance safety performance based design Implement Intelligent Transportation Systems Vehicle Related Emphasis Areas Implement Advanced Vehicle Technologies Improve Vehicle Crashworthiness Eliminate Fatalities involving Commercial Vehicles Eliminate Fatalities involving Ambulances Eliminate Fatalities Related to the Upkeep and Maintenance of the Existing Vehicle Fleet Emergency Medical Services Improve Access and Capabilities Improve Incident Detection Improve EMS system response and capacity Improve On Scene Medical Care Improve the Safety of Crash Victim Patients Improve Hospital and Specialty Care Infrastructure Chapter 5 Supporting Components of TZD Introduction Emphasis Area: Safety Management Data and Analysis The Importance of Data, Data Management, and Analysis Tools The Need for Systemwide Data iv 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY

5 CONTENTS, CONTINUED Emphasis Areas for Data and Analysis Workforce Development and Training Emphasis Area: Advance Workforce Development and Training within Highway Safety and Related Professions Public Health Emphasis Area: Advance and Extend the Use of Injury Surveillance Programs to Support the Monitoring and Evaluation of TZD Goals, Plans, and Related Programs Emphasis Area: Integration of Public Health as a Key Stakeholder in Highway Safety Communication Emphasis Area: Improving Public Understanding of Highway Safety Emphasis Area: Promote the Adoption, Support, and Implementation of the TZD National Strategy Chapter Introduction Implementation Stages Stage 1: Maintain Progress and Build on Momentum Achieved with SHSP (5 Years) Stage 1 Focus Areas Summary of Stage Stage 2: Set the Stage and Invest for Long Term Success (5 Years) Stage 2 Focus Areas Summary of Stage Step 3: Accelerate Toward Zero Deaths Reap the Fruits of Stage 1 and 2 Efforts During the First 10 Years (15 Years) Stage 3 Focus Areas Summary of Stage Framework Summary NCHRP NDDRAFTFRAMEWORKUPD.DOCX/[INSERT DOCUMENT LOCATOR] v

6 CONTENTS, CONTINUED Section Page List of Exhibits EXHIBIT 1: Toward Zero Deaths... 2 EXHIBIT 2: Decade of Action for Road Safety EXHIBIT 3: National TZD Steering Committee Member Organizations... 3 EXHIBIT 4: Historical trend of fatalities and fatality rates from 1961 to EXHIBIT 5: Drinking and driving in fatal crashes ( )... 8 EXHIBIT 6: Restraint use in fatal crashes ( )... 9 EXHIBIT 7: Motorcycle fatality trends ( ) EXHIBIT 8: Comparison across countries EXHIBIT 9: Change in Perceptions about Causes of Crashes over Time EXHIBIT 10: Pedestrians Killed in Motor Vehicle Crashes ( ) EXHIBIT 11: Bicyclists Killed in Motor Vehicle Crashes ( ) EXHIBIT 12: Motorcyclists Killed in Motor Vehicle Crashes ( ) EXHIBIT 13: Rate of Helmet Use Before and After Repealing a Universal Helmet Law EXHIBIT 14: Rate of Helmet Use Before and After Enacting a Universal Helmet Law EXHIBIT 15: Rate of Helmet Use Before and After Repealing a Universal Helmet Law EXHIBIT 16: Lane Departure Fatalities EXHIBIT 17: Implementation Road Map for Toward Zero Deaths vi 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY

7 Acronyms and Abbreviations AAA AASHTO ASE ATS BAC CDC DUI EMS FARS FHWA FMVSS GPS HSM IADL IHSDM ITS mph MUTCD MVMT NCHRP NEMSIS NHTSA OECD RITA SAFETEA LU SHSP TBI TRCCs TZD US USDOT VMT American Automobile Association American Association of State Highway and Transportation Officials automated speed enforcement advanced traffic management system blood alcohol content Centers for Disease Control driving under the influence emergency medical services Fatality Analysis Reporting System Federal Highway Administration Federal Motor Vehicle Safety Standards global positioning system Highway Safety Manual instrumental activity of daily living Interactive Highway Safety Design Model intelligent transportation systems miles per hour Manual on Uniform Traffic Control Devices million vehicle miles of travel National Cooperative Highway Research Program National Emergency Medical Services Information System National Highway Traffic Safety Administration Organization for Economic Cooperation and Development Research and Innovative Technology Administration Safe, Accountable, Flexible, Efficient Transportation Equity Act A Legacy for Users strategic highway safety plan traumatic brain injury traffic records coordinating committees Toward Zero Deaths United States United States Department of Transportation vehicle miles of travel 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY VII

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9 Chapter 1: Introduction Introduction the Need for Toward Zero Deaths The human and economic toll associated with highway traffic crashes in the United States is among the most significant social problems our nation faces. Every year fatal traffic crashes claim over 30,000 of our nation s adults, teenagers, and children each a tragic loss to a family. Traffic crashes also caused 2.24 million injuries (over four each minute) in Many of the injuries were so serious that the abilities and lives of the victims were permanently changed. And it is not only these victims that were directly impacted; those close to them suffer too. Nearly half of all Americans have been involved in a serious crash or had a friend or relative seriously injured or killed in a crash. The bottom line is simple: these statistics translate into massive human grief and suffering. They are proof that a strong Toward Zero Deaths (TZD) program is needed, and needed now, in America.. The death toll on the nation s highways is much more than a transportation problem it ranks as one of the most serious public health issues of our times. The Centers for Disease Control (CDC) notes that in 2008, traffic crashes were among the leading causes of death. The CDC also found that motor vehicle crashes are the leading cause of unintentional injury death for 5 to 34 year olds and 55 to 64 year olds. 1 Crashes are the second leading cause of unintentional nonfatal injuries for 15 to 24 year olds, and the third leading cause for those 25 and older. 2 The high number of traffic deaths has been acknowledged as a problem, and over the past 40 years tackled with some measure of success. Indeed, from the 1972 high of almost 65,000 fatalities to the 2010 level of 33,788 fatal crashes have decreased while mobility and traffic have increased dramatically with population and vehicle registration. Our highways are clearly safer than they were 40 years ago for many reasons. Indeed, recent history demonstrates that it is possible for concerted action and resource allocation to produce meaningful reductions in traffic deaths. The 2005 Safe, Accountable, Flexible, Efficient Transportation Equity Act: A Legacy for Users (SAFETEA LU) legislation had at its core a focus on highway safety. Since its passage, funding initiatives dedicated to safety has helped reduce fatalities from 42,856 in 2004 to 33,883 in This demonstrates the potential positive improvements when attention is focused on the problem. Unfortunately, SAFETEA LU was a short term effort with limited funding. Many are concerned that the reduction in traffic fatalities may plateau, as has occurred in the past, and that without a renewed long term approach, the national toll may continue at its current levels or even trend upward. This must not occur. 1 CDC (2010) using 2007 data. 2 CDC (2010) using 2008 data. 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY 1

10 CHAPTER 1: INTRODUCTION Toward Zero Deaths A broad range of stakeholders concerned with the general welfare and health of the United States public believes firmly that we can do better, that 30,000 deaths every year is too many to tolerate. These stakeholders have pledged their personal and corporate reputations and support behind a public health initiative titled Toward Zero Deaths, or TZD. These stakeholders, from private industry, government, and nonprofit organizations, representing wide ranging interests including public education, medical services, transportation, law enforcement, and business recognize that not only is it possible to reduce highway deaths, it is also an imperative for the long term health of the U.S. economy. Exhibit 1 shows the national partners supporting the vision and states that has TZD type visions in place. EXHIBIT 1: Toward Zero Deaths These stakeholders recognize that the causes of traffic crashes and their outcomes are many. First and foremost, crashes involve people as both causes and victims. Human frailties and limitations; antisocial, high risk behaviors; and the sheer volumes of people desiring the freedom and mobility of driving all create risk. Not everyone is equally capable of operating a vehicle; not everyone is sufficiently respectful of or even aware of the risks associated with speeding, driving while distracted or fatigued, and driving under the influence of alcohol and drugs. Professionals tasked with designing, constructing, and operating the highway system, including those who enforce traffic laws, have limited resources and competing interests for those resources. There are over 8 million lane miles of roadway in the United States, 3 70 percent of it in rural areas where speeds are high, law enforcement is difficult, and emergency services limited or distant. In our cities, a prevalent form of transportation is walking, and an emerging one is bicycling. Each are promoted as being, among other things, healthy and eco friendly. Yet pedestrians and bicyclists are inherently vulnerable. About 14 percent of fatalities in the U.S. are motorcyclists, and 13 percent are pedestrians or non occupants. 4. What appears at first blush to be a daunting and indeed impossible task is believed by the TZD stakeholders to in fact be achievable, but only with a committed and rigorous approach. First and foremost, reducing crashes requires a multidisciplinary and multi institutional approach. Crashes are the responsibility not just of state departments of transportation or the Federal Highway Administration; they are the responsibility not just of county sheriffs or state or municipal police departments. Rather, they are the responsibility also of emergency medical providers, who have a strong role to play in reaching and quickly treating crash victims, thus reducing the severity of the outcome of crashes; and they are the responsibility also of political leaders, who need to provide not just resources but also legislative tools that protect the public from drivers incapable or unwilling to act responsibly behind the wheel. 3 Bureau of Transportation Statistics, USDOT (2011). 4 National Highway Transportation Safety Administration (2010). 2 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY

11 CHAPTER 1: INTRODUCTION Second, we must be objective, data driven, and cost effective in considering which strategies to apply where and when. For many agencies, developing the necessary databases and knowledge bases will be challenging enough, but long term success demands it. Third, we must be committed to the long haul. Effecting significant reductions in traffic fatalities will mean bringing about change change in culture and driver behavior, change in how organizations operate, change in how transportation agencies prioritize and perform their jobs, and change in how political leadership embraces the importance of addressing the traffic death toll. Overview of the TZD Initiative Highway deaths are a global problem, of such magnitude that the World Health Organization has initiated in May 2011 a Decade for Action (decadeofaction.org) to reduce highway deaths (Exhibit 2). EXHIBIT 2: Decade of Action for Road Safety Source: Decade of Action (2011), World Health Organization and FIA Foundation, decadeofaction.org. This TZD framework represents the United States response and commitment to WHO s initiative. A National TZD Steering Committee was formed representing leading organizations and stakeholders with an interest in highway safety. Exhibit 3 lists those stakeholder organizations on the committee, which is guiding implementation of the framework. As part of the effort, one member of the TZD Steering Committee, The American Association of State Highway and Transportation Officials (AASHTO), has funded the development of this framework and other activities associated with outreach and implementation. The following chapters outline the framework that was developed and endorsed by key stakeholders who are committed to lowering fatalities by 50 percent over the next 20 years, and then continuing toward zero. EXHIBIT 3: National TZD Steering Committee Member Organizations American Association of Motor Vehicle Administrators American Association of State Highway and Transportation Officials Commercial Vehicle Safety Alliance Governors Highway Safety Association International Association of Chiefs of Police National Association of County Engineers National Association of State Emergency Medical Service Officials The federal government is represented in an ex officio capacity by: Federal Highway Administration Federal Motor Carrier Safety Administration National Highway Traffic Safety Administration Source: AASHTO (2011), safety.transportation.org. Audience for the Framework The framework is intended for those in leadership and executive positions within any organization that plays a meaningful role in the operation or use of the nation s highway system, including governmental agencies, private corporations, and nongovernmental special interest groups. The framework presents proven approaches and solutions as well as background information on implementation and the effectiveness of such solutions to reduce the risk of fatalities and serious injuries. It is intended as a reference and for use in the building and implementation of programs designed to support the national goal of Toward Zero Deaths. 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY 3

12 CHAPTER 1: INTRODUCTION Supporting Documentation The framework builds upon a large body of scientific research covering driver and human behavior, physics, traffic operations, highway design, law enforcement techniques, and organizational/institutional behavior. Notable sources of information upon which the framework is built include the following: Summary Report TZD White Papers, available from AASHTO (safety.transportation.org) NHTSA s Countermeasures That Work NCHRP Report 622: Effectiveness of Behavioral Safety Countermeasures NCHRP Report 500: Guidance for Implementation of the AASHTO Strategic Highway Safety Plan Transportation Research. U.S. Department of Health and Human Services: Healthy People 2020 (2010) and National Prevention Strategy (2011). Fundamentals Underlying the Framework and Its Use Readers of the framework will note the following fundamentals, which are imbedded throughout and which explain not only reasons for our current problem but also effective approaches to dealing with the problem: Strategies outlined in the framework are focused on fatalities and serious injuries produced by highway and traffic crashes. This translates into a strong focus on certain (not all) crash types and circumstances. It also translates into not just crash prevention but also severity mitigation. Those strategies outlined represent the consensus of the safety community in terms of what is currently known to be proven effective through peer reviewed scientific research. Human behaviors, limitations, and frailties are at the center of most of the strategies. Humans operate the vehicles, are vulnerable system users, and are the victims. Human response to incentives, penalties for antisocial risk taking behavior, and the surrounding driving environment all contribute to crash risk. The culture of a community, state, and nation with respect to safe (and unsafe) driving practices is also central to understanding the effectiveness of many strategies. Reducing highway deaths, as important as it may be, is not the sole priority of any organization endorsing and using the framework. This is not to say that achieving TZD is impossible, but it does demand key fundamental approaches: Given the existence of other societal priorities, and given limitations in resources available for addressing highway deaths, it is imperative that only cost effective approaches be implemented. Implemented strategies must be data driven and science based. We cannot afford investing limited financial, human, and political capital in unproven approaches. Interdisciplinary approaches are essential to achieving meaningful and measurable success. This will mean building and strengthening crossagency and jurisdiction partnerships to coordinate activities, share data and other resources, and avoid overlapping or wasteful programs. Finally, we recognize that one of the great strengths of this country its geographic, demographic, and cultural diversity presents challenges to being successful. Our governmental structure places the responsibility for most activities associated with safety (licensing, law enforcement, construction and operation of the highway system) in the hands of state and local elected bodies. Different approaches and emphases to addressing traffic deaths will be driven in large part by the local context. There may be common problems (e.g., the role of alcohol in traffic crashes), but the most effective or indeed implementable solutions may vary depending on the locale. 4 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY

13 CHAPTER 1: INTRODUCTION How to Use the Framework The framework is just that a framework. It is not a detailed strategic plan, which is what any agency will need. It is based on an evaluation of overall national statistics on the types of and circumstances behind fatal crashes. For any one agency or jurisdiction, its specific historic record of fatalities and its unique conditions should dictate which parts of the framework should be used for guidance and which parts may not be relevant. Indeed, an efficient and cost effective approach requires a strategic plan that reflects the type and extent of the local traffic safety problem. The framework presents potential solutions and their effectiveness. An effective strategic plan built from the framework will consider any and all potentially valuable approaches. As such, those involved with the strategic plan will inevitably come from multiple stakeholders. In most cases, then, leadership and a commitment to trust and cooperate with other stakeholders will be essential for success. Finally, the framework outlined here reflects the body of science based knowledge as of One strong component of the framework is a commitment for further investments in research. The intention of the TZD Steering Committee is to review and vet such research as it emerges and to regularly update the framework over the next 20 years to ensure the best approaches are continually available for all. 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY 5

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15 Chapter 2 Background Background on the Scope of the Problem The most current information on highway fatalities and injuries shows the toll in 2011 in the U.S. was deaths and 2.24 million injuries. Exhibit 4 shows the historical trend from the early 1960s in both fatalities and rate (per 100 million vehicle miles of travel). The period covered by the recent SAFETEA LU legislation from early 2000s to the present has once again demonstrated an ability to produce meaningful positive results. The 1995 AASHTO SHSP and subsequent legislation has proven its value, with fatalities dropping from the 42,000+ range throughout the 1990s to the present day 33,000. EXHIBIT 4: Historical trend of fatalities and fatality rates from 1961 to 2009 FATALITIES 60,000 50,000 40,000 30,000 20,000 10, Fatality Rate per 100M VMT Some Perspectives on History Fatalities This historical view produces some important perspectives: We have in the past focused on highway fatalities for short time periods and produced meaningful improvements (early 1970s, early 1980s, late 1980s to early 1990s), but have eventually lost momentum and seen fatalities rebound. Previous efforts tended to focus on just one aspect of the problem (for example, seat belt usage and alcohol) but failed to address the problem holistically FATALITY RATE/ 100 M VMT A focus on fatality rate may leave the impression that real progress has been made long term, and may even lead some to conclude that we are reaching or have reached a point of diminishing returns. There are valuable lessons to be learned from history and from earlier attempts to address highway fatalities. First, the focus must be on fatalities (and injuries) not rates. The latter metric accounts for travel demand, which is ever increasing and will continue to increase. A focus on rates allows us as a nation to accept high death tolls as an unavoidable outcome of increased population and travel demand. Subsequent sections of this framework demonstrate that is not an acceptable excuse. Thirty thousand fatalities is unacceptable regardless of what rate that translates to. Second, a meaningful effort requires a long term concerted commitment (unlike previous efforts). The AASHTO SHSP represented a fine start, but by design and intent, it was envisioned as a relatively short term effort 5 to 7 years. The enabling legislation will soon be replaced. It is by no means clear that momentum can and will be maintained without overt action. Moreover, it is clear that much of what needs done will take time to accomplish not just because of resources, but because significant cultural and organization change will be necessary. Third, we can gain encouragement from the fact that our history of surface transportation investments shows we can move toward zero. In the early 1970s over 54,000 people per year died on 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY 7

16 CHAPTER 2 BACKGROUND our streets and highways. Since then, our population has increased by 152% and travel (in VMT terms) by 267%; yet we have reduced deaths to the low 30,000s. The lesson is that we can move toward zero the only question is our ability and commitment to get there sooner by saving many more lives. Highway Fatalities in the Present Day The scope and details behind the 33,000 highway fatalities are covered in subsequent chapters. The following subsections highlight key major points that add perspective to establishing a framework for TZD. Context In 2010, or 56% of highway deaths occurred in rural areas, with 13,350 and 43.3% in urban areas. The circumstances, context, and approaches clearly differ for each situation. In many states, the problem is fundamentally a rural one. In other states it will be a combination of both. Exhibit 5 illustrates another key issue. Almost half the fatalities in the U.S. occur on locally owned and maintained highways, roads, and streets that is, not under the control or responsibility of the state Department of Transportation, which clearly has implications in terms of resource allocation, data and knowledge, and monitoring and management. There are 50 states plus the District of Columbia, but over 3,086 counties and even more cities with road systems to own and manage. Significant Contributing Factors The role of alcohol (and drugs) in contributing to crashes has been recognized as among our greatest problems. Despite previous efforts in public education and targeted enforcement programs, alcohol continues to be a major problem. Exhibit 3 shows that almost half of fatalities occur with some alcohol in the driver s bloodstream, and over 20 percent with a blood alcohol concentration greater than 0.08 percent. Note that the numbers have not changed over the past 15 years despite being a primary focus of the AASHTO SHSP. EXHIBIT 5: Drinking and driving in fatal crashes ( ) Another stubborn trend persists, one that is misunderstood by many. It is well established that drivers and occupants wearing seat belts and restraints experience a significantly lower risk of serious injury or fatality when in a crash. The area has also been the subject of much effort over the years, and statistics are often cited demonstrating that more and more drivers are wearing seatbelts. As shown in Exhibit 6, though, while 63 percent of fatally injured drivers were wearing seat belts in 2008 (up from less than 50 percent 15 years earlier), 37 percent were unbelted or unrestrained. How many of those lives could have been saved merely by wearing seat belts or restraints is unknown. Moreover, 57 percent of non driver occupants killed in crashes were unrestrained. In recent years, mandatory seat belt legislation coupled with enforcement has produced measurable improvements in seat belt usage. However, there clearly remains a significant proportion of drivers who choose for personal reasons not to wear seat belts. The two stubborn trends noted above alcohol involvement and restraint usage remain the most significant barriers to TZD. Such high risk behaviors are observed both in rural and urban areas, and in all parts of the country. A centerpiece of the TZD framework and of any entity s strategic plan must tackle both of these issues. 8 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY

17 CHAPTER 2 BACKGROUND EXHIBIT 6: Restraint use in fatal crashes ( ) Important Trends to Consider Given the need for a long term effort, it is necessary for our approach to acknowledge and embrace long term demographic and other trends, and they should not be viewed as barriers to or excuses for failure to strive towards zero, but rather factors that must be explicitly planned for in building both a framework and strategic approach going forward. Demographic Trends We must assume that the U.S. will continue to be a thriving nation, a country of growth and one that highly values mobility for both personal freedom and economic reasons. Population forecasts indicate an expected growth from million in 2010 to million by 2030, a 20 percent increase. Long term travel trends show VMT increasing at roughly 2 percent per year. One forecast shows total travel by VMT of 7 trillion VMT in 2050 compared with 3 trillion in As the economy recovers, we can expect such long term trends to resurface. Other important demographic trends include the make up of the U.S. population. The elderly (age 65 and older) will increase from 13 percent to over 19 percent of total population by 2030, according to the U.S. Health and Human Services Administration on Aging. Moreover, they are more prosperous, will be healthier, more mobile, and will continue to drive longer. Addressing the special needs and problems associated with elderly drivers, already a significant issue, will increase in importance. Travel Demand Trends and Characteristics The U.S. has always been a highly mobile society and that will continue. Over the long term, populations have shifted from a primarily ruralbased economy to one that is more urban. We expect that in the next 20 years the trend will continue. Directly related to the trend is the emphasis on biking and walking, which are gaining momentum in the U.S. It is interestingly cited as a positive public health issue but from the perspective of safety risk on our streets and highways, pedestrians and bicyclists are our most vulnerable travelers. In 2009, 4,092 pedestrians (13 percent of total fatalities) and 630 bicyclists (2 percent) were killed in traffic crashes. Increased emphasis on biking and walking combined with increased urban populations suggests the numbers could increase absent explicit emphasis and actions. Trucks are a special, important user of the highway system. Their size, weight and performance characteristics pose special highway safety problems. In 2009, 3,380 fatalities occurred in 2009 in which a truck was involved, which is a decline from previous years. However, over the long term, we expect a significant increase in demand for freight movement by truck. High value, timesensitive cargos in large quantities can only be costeffectively moved by truck. A forecast prepared in 2004 suggested that tonnage of freight moved by truck would increase by 114 percent by the year A final travel trend worth noting concerns transit, whether by bus, heavy rail, or light rail. Travel by transit represents a meaningful portion of home towork travel in major metropolitan areas. Emphases on increasing transit mode share have the potential for reducing vehicle miles of travel by passenger car, and thus positively reducing aggregate risk. Perspective, though, is needed lest transit be viewed as a centerpiece of a highway fatality reduction strategy, or a reason not to focus on highway fatalities. Except in the very most dense and heavily populated cities, and only in their cores, transit trips are only a modest share of total persontrip making. 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY 9

18 CHAPTER 2 BACKGROUND Emergent Trends Motorcycle Fatalities [Note to reviewers citing the trend in distracted driving/cell phones is also worthy for some of the same reasons as the motorcycle experience. Please advise regarding this with space concerns in mind.] One noteworthy emergent trend involves motorcycles and motorcycle fatalities. Exhibit 7 shows that motorcycle fatality deaths have soared from the mid 1990s when they were just over 2,200 per year (and less than 5 percent of total fatalities) to over 5,000 per year in The speed and severity of the trend and responses to it are of interest. In the original AASHTO SHSP, motorcycles were a relatively minor consideration representing less than 5 percent of fatalities in Many states did not include motorcycles in their strategic plans as they did not represent a meaningful number and hence were not considered a strategic priority. Two emergent trends, both of them adverse in consequences, explain why motorcycles are now a greatly outsized risk factor compared to other fatal crash types. First was the sharp interest in motorcycle riding as evidenced by registration increases over the past 15 years. Second was the action by many state legislatures to repeal motorcycle helmet legislation and/or refuse to pass such legislation. In such cases, priorities other than fatality risk drove the legislative agenda. EXHIBIT 7: Motorcycle fatality trends ( ) The outcomes provide lessons learned going forward with respect to a long term TZD framework. We must be prepared to monitor and address future trends and risk factors that may not be present or significant today. A Way Forward Roadmaps for Success Moving Toward Zero is best understood as a case of establishing priorities, taking a strategic approach based on data driven information, and being committed over time. Despite adverse trends, current funding limitations and other barriers, there are real examples of how meaningful progress can be made. International Experience We are acknowledged as being the wealthiest nation on earth, capable of accomplishing anything we set our sights on as a people. It is instructive, then, to compare our progress in reducing fatalities with our peers other nations with similar cultures, governmental structures, and values. Exhibit 8 compares U.S. fatality rates per 100,000 population with other western democracies. Clearly, we lag behind many. Indeed, on a population basis, Sweden s rate of highway fatalities is roughly half that of the U.S. This should be viewed as a positive message. There is no reason why the U.S. could not, if a consensus were there, achieve the same as Sweden. State Experience Perhaps even more instructive are comparisons among the 50 states plus DC in response to the AASHTO SHSP and SAFETEA LU. [ Note to reviewers I would propose showing a map and/or list of, say, the top 5 states in terms of their performance over the past ten years in reducing fatalities. The point would be not to congratulate them or denigrate others, but merely demonstrate that if all states did what these 5 did, we would be well on our way to the goal.] 10 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY

19 CHAPTER 2 BACKGROUND The reality -- We lag behind our peers High-income countries: Fatality rate per 100,000 population Sou rce : Glo bal Status Re port on Road Safe ty: Ti me for Actio n, WHO, 2009 EXHIBIT 8: Comparison across countries When one examines what other nations have done, and what many successful states have done, one sees the roadmap to success in moving Toward Zero. Their efforts have addressed not just infrastructure but driver behavior; a strong education and enforcement program exists in multiple strategic areas, they have strong enabling legislation, and their success is attributable to multiple stakeholders working together on the common problem. Lessons Learned for the TZD Initiative The TZD initiative should build on the knowledge gained from others experiences and our own efforts dating from the original AASHTO SHSP. While the latter offers many insights and a good starting point, success in TZD will mean breaking new ground: In many respects successes over the past ten years represent picking the low hanging fruit. Further progress will need to focus on stubborn problems related to driver behavior and the driving culture Affecting cultural change will take time. TZD should be viewed as a 25 year effort, and not the 5 to 7 year effort originally envisioned in the original AASHTO SHSP. A commitment to continue the work will by necessity extend beyond the time frame of federal reauthorization legislation, and terms of elected officials. US About half the fatalities occur on local roads and streets. For the most part agencies (counties, MPOs, Cities) responsible for such systems lack data and information, tools, knowledge and resources to address the problem. It will take time to build up their capabilities. About half the fatalities occur in rural areas. In many cases tried and true black spot reactive approaches will not apply. Emphasis on culture change, strategic enforcement and education will be needed. Political leadership and support is essential, at all three segments of government (legislative, executive, judicial); at all levels (local and state). Knowing what works and is effective (see Chapter 4) and being able to implement what works are two different things. Competing priorities and values and misinformation about the nature and causes of traffic fatalities have become barriers to implementing proven approaches, and in some cases been wasteful and counterproductive. Again it will take time for public health and transportation professionals to engage political leadership and provide them the information they need to allow them to support TZD. Finally, availability of financial resources is commonly viewed as a necessity for any new strategic priority. It is always the case that society and government must deal with many important priorities. It seems clear that for the foreseeable future there will be limitations on dollar investments that are targeted for any public health issue, including highway fatalities and injuries. Lack of resources can and should not be viewed as essential to any organization s decision to commit to TZD. The focus should be on the T Toward. 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY 11

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21 Chapter 3 Safety Culture Over the last few years the effort of those in highway safety and related areas has paid off: fatalities are decreasing and we are observing a downward trend in fatalities. With one person dying every 16 minutes in a crash, we recognize that we will need to make adjustments, in some cases doing more and in others continuing to do what we do now, only differently. The downward trend and acceleration of fatality reduction will require a social climate in which traffic safety is highly valued and rigorously pursued by everyone change our safety culture. This is what makes the TZD vision fundamentally different from what we have done before. Safety culture vary across regions and even within the same city, across age groups, other demographics and groups formed based on common interests and priorities. A TZD vision will require every member of society to accept that any person dying on the nation s roads is unacceptable. The change will require changing perceptions, attitudes, beliefs, values, and behavior across all users and organizations. In Chapter 3, we discuss the need for safety culture change, the progress our society has made in changing safety culture, the objectives for changing safety culture and discuss two emphasis areas in safety culture: changing the safety culture of users and institutions. The chapter also provides strategies that focus specifically on safety culture. The framework presents strategies targeting safety culture but is strongly associated with specific emphasis areas, such as impaired driving, in Chapter 4. The Need for Safety Culture Change Traffic safety culture has changed over time. In the early 1960s, the safety culture began focusing on occupant protection, with automotive manufacturers and federal regulators joining forces to save lives. The automotive industry has managed to sustain constant innovation with an even bigger focus on safety. Automotive manufacturers are now proactively considering including safety features as standard and actively competing for NHTSA s five star vehicle safety rating. Drivers have also made some safety culture changes. Seatbeltwearing rates have improved in those crashes where it is needed most (fatal crashes), from 49 percent of drivers in fatal crashes wearing their seat belts in 1994 to 63 percent in The perceptions about the causes of crashes changed over time, as shown in Exhibit 9. These changes impacted past approaches to strategy selection and shaped a way of thinking that can slow down or prevent safety culture change. For example, when a crash is regarded as an accident it is not preventable. When crashes are caused by crash prone individuals, then only those individuals need to change, and so forth. EXHIBIT 9: Change in Perceptions about Causes of Crashes over Time Source: OECD (1997). 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY 13

22 CHAPTER 3 SAFETY CULTURE Virtually all drivers disapprove of drinking and driving but one in five admitted to this behavior within the last month. Most drivers consider texting and ing while driving pose a serious threat to their safety but one in four have sent a text or in the last month and one in three read a text or message in the last month while driving. When it comes to seat belts, not wearing them is viewed by most as unacceptable but one in four drove without a seatbelt within the last month with one in five doing it more than once. These and other safety culture indicators reveal a do as I say, not as I do attitude. This is significant in that it reflects part of the challenge in changing safety culture. Some would argue that the progress in changing safety culture has been too slow. In other cases, challenges are persisting and we have been unable to change behaviors putting us at risk. For example, the portion of alcohol impairment related fatalities have not changed since 1998, remaining around 30 percent. An assessment of our safety culture in 2011 reveals a This do as I say, not as I do attitude by drivers (refer to impaired and distracted driving emphasis areas for further information). Until every road user accepts personal responsibility for their own contribution in the risk of fatalities and reflect that in their behavior, we will need to continue our efforts to improve safety culture. Changing safety culture requires a long term approach. While the Framework s 25 year vision reflects the need for a longer term perspective, there is an urgency for a paradigm shift in our current safety culture. It will not be easy. The behaviors we exhibit and the choices we make are part of common social norms and reinforced by perceptions. The paradigm shift will have to change our thinking and even more than that, change the institutional character built on the current culture. Changing driver behaviors is not rocket science it s harder. Peter Kissinger, AAA Foundation, 2012 In most cases, we will have to approach safety culture changes in a phased manner by first changing we talk about as a society or a profession. The media is a key partner in bringing these discussions in the forefront and educating throughout the process. Allowing a 1 to 2 year period to introduce the phases one by one increases the chances for success. The policies can be introduced in an environment where they are much more likely to survive the political process and public resistance. The previous success with such an approach implies that safety culture change will only occur when we win public support for change. Interest groups and safety related agencies can work to help skilled legislative staffers to become knowledgeable in emphasis areas. Safety culture is strongly linked to legal culture. In the U.S., legislation has always been a key part of any shifts in paradigms. Unfortunately, legislation usually reflects past culture and safety often focuses on blameworthy behavior and punishment rather than supporting cultural change. Legislation often identifies just one more crime that cause death, presenting simple solutions to traffic safety that is much more complex. Legislation has it place but is not the only component that may support a change in safety culture for a particular emphasis area. Education efforts can play a key role in safety culture change: changing the perceived legitimacy of strategies. This perceived legitimacy could change over time and past efforts in areas such as child restraint use, and more recently with textingand driving. Approaches to selecting strategies to drive safety culture change The culture of users within the U.S. does not represent one particular culture but rather an accumulation of cultures across communities, regions, institutions, agencies, ages, and even across the different domains working towards fatality reduction. There is no one size fits all approach that will change safety culture. The selection of strategies most likely to drive culture 14 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY

23 CHAPTER 3 SAFETY CULTURE change will be those considering the particular culture and deliberate assessment of the culture to fully understand their value system, attitudes, perceptions, fears, and what is driving actual current behavior. Some argue that there should be at least some indication that public acceptance of strategies is likely in the short to medium term. Barriers to Safety Culture Change The following represents a few examples of some of the barriers that can slow down or prevent safety culture change. It is in overcoming the barriers that we will be more likely to support culture change where even one death on our highways is unacceptable and worth saving: Considering driving as a right. This relates close to issues of civil liberty. Some argue that approaches to change safety culture will need to be considerate and respectful of civil liberties to be successful. Crashes are accidents. Accidents are inevitable incidents where the consequences are a given that cannot be changed. Sufficient scientific evidence exists that crashes are preventable and correctable. Resisting freedom and comfort in favor of health and safety. Valuing other priorities higher than safety. Relying on perceptions of what would improve safety rather than science to identify the subset of strategies most likely to reduce fatalities. Ignoring the new behavioral and attention demands of strategies aimed at improving safety or social connectivity. Relying on top down approaches to change safety culture. Using communication and legislative interventions that force safety change rather than build and support the change among the public or target audience. Research as a Key Component of Achieving Safety Culture Change Evaluation and research are critical to the success of safety culture change. The contributions of domains such as social norming, behavioral change and others may be proven in their field, for one particular behavior or context, for one particular culture group but may not be proven to bring about the behavioral change required for particular emphasis area. Learning more about the connection between attitudes, perception, behaviors; and success of interventions will drive large scale adoption of approaches that can drive change. The highest priority research area in safety culture change is drinking and driving, and in particular subpopulations as it relates to binge drinking; motorcycle helmet use; and safety behaviors among age groups and subcultures that have been resistant in change. Role of Public Health Public health has a demonstrated history of bringing about culture change. Refer to Chapter 5 for a more detailed discussion and strategies in this area. Change Safety Culture of Users Safety culture change among users should reflect permanent actual behavior change that will reduce fatalities. Changes in perceptions and attitudes do not necessarily translate into actual behavioral changes over the long term. Potential Strategies to Change Safety Culture of Users Potential strategies include: Focused public outreach effort Early education in schools and throughout communities to influence young people Public health programs to educate people on the impacts of poor traffic safety choices Employer/work place programs 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY 15

24 CHAPTER 3 SAFETY CULTURE Change Safety Culture of Institutions The safety culture concept was first developed as part of a risk management strategy within organizations. In terms of TZD, institutions need to change their safety culture, and at a minimum Within each agency (within and across all business units) Across agencies at the same level of government (federal, state, and local) Across the different levels of government (federal, state, and local) Success in TZD will hinge strongly upon the ability of safety culture change in each of the areas listed above to support fatality reduction on the local highway system. Characteristics of a TZD Safety Culture in Institutions The following presents characteristics of safety culture change that will be necessary to the success of the TZD vision: Business activities, spending, and leadership reflects a way of thinking that recognizes that financial burden of fatalities carries across programs, administrative structures and organizations. For example, investment (or failure to invest) in features improving the safety performance of roadway infrastructure translates into savings (or losses) to other sectors that includes health and the public. Budgets across these areas are not shared, and subsequently may influence decisions in each area narrowly. When a set of programs share the common goal of reducing fatalities the likelihood of more balanced approaches improve. Agency goals for fatality reduction reflects the need for actual effort for sustained change, is measured and tracked to monitor progress and change approaches where needed. The best available scientific knowledge is used and resources are shared within and across business units and agencies in the interest of the common goal to reduce fatalities. Business processes and priorities reflect a willingness to embrace advances in the science of safety and the ability to develop and apply recent advances in knowledge. Evaluates all activities, programs and projects in a manner that supports respectful use of public resources and to drive continual improvement towards fatality reduction. Business practices and approaches reflect an unwillingness to neglect what is known scientifically about impacts on fatalities. This includes deliberate actions to support research to drive growth in the science of safety and has mechanisms in place to prevent evaluation findings that may not support current approaches or approaches to become public. Builds partnerships between stakeholders and agencies and support partnerships across and within organizations. Selects and prefer to implement strategies that are proven and sustainable in the long term. Reflects a willingness to learn from best practices, states, agencies and the private sector where safety culture change occurred and sustained. Senior Management Support Past efforts in safety culture change indicate that change is possible without senior management support. Accelerating safety culture change within organizations would be more likely when the executive level supports the changes needed. Endorsement by top management and recognized leaders in a particular profession or organization will also support the safety culture change. In terms of implementation of new knowledge in safety management top management support may be essential to bring about the change to create a sustainable, integrated and coordinated effort that benefits the organization and the public or interest group they serve ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY

25 CHAPTER 3 SAFETY CULTURE Potential Strategies to Change Institutional Culture Potential strategies include: Data driven decision making procedures and tools to support scientific approaches to reducing fatalities. Addressing local roads as part of fatality reduction activities Local roads represent a substantial portion of overall fatalities. Institutional change across all levels of government to support efforts to reduce fatalities on local roads is essential to success. Building local and regional partnerships to support safety programs, plans and fatality reduction Partnerships, particularly those sharing a common vision such as TZD, increase the potential for success and for sustainable implementation approaches. These partnerships recognize that the partnership can be successful in a manner that no individual partner can achieve. Establishing champions at all levels to lead institutional change and implementation of strategies to reduce fatalities Safety culture change in institutions often brings about new or changed approaches to performing particular tasks or managing a program. The leadership of a champion can be a determining factor because of their commitment and willingness to advocate or even commit resources (funding, technical expertise, etc.). These champions are often credible in their profession or organization; have high levels of organizational knowledge; are skilled in dealing with political trade offs and have a history of being individual that has the trust of others and the commitment to achieve success. 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY 17

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27 Chapter 4 TZD Emphasis Areas Drivers, Passengers and Vulnerable Users Eliminate Impaired Driving Fatalities Scope of the Problem Impaired driving fatalities include all fatalities associated with crashes where one or more of the drivers were driving while under the influence of alcohol or drugs. Impaired drivers contributed to approximately 31 percent of the fatalities in This is a slight decrease of the fatalities in However, after a long period of decline during the 1980s and 1990s, the number of impaired driving fatalities has remained relatively constant. Representing approximately 78 percent of impaired driving fatalities, males are more likely than females to be involved in alcohol related crashes. Nearly half of male traffic fatalities are related to impaired driving. Males aged account for 32 percent of impaired driving instances, yet they represent only 11 percent of the country s adult population. Nearly two thirds of the children killed in motor vehicle crashes were riding with an impaired driver. Fatal crashes involving impaired drivers peak during the hours of 12 a.m. to 3 a.m., accounting for two thirds of all these fatalities. Nearly 69 percent of these fatalities involve single vehicles. Use of designated drivers is one strategy considered successful by the general public, but evidence is insufficient to prove it is a successful strategy for reducing impaired driving. The next section provides a list of potential strategies, most of which are proven to be effective. Potential Strategies Ignition interlock systems As of September 2011, 15 states are now requiring ignition interlocks for repeat convicted drunk drivers. The CDC s Task Force on Community Preventive Services recommends the installation of ignition interlocks after a systematic review of 15 studies: re arrest rates were reduced on average by 67 percent over comparison groups (removal resulted in re arrest rates reverting to those associated with individuals who never used ignition locks), and crash rates for drivers with ignition locks were similar to those of the general driving population. Improved alcohol and drug detection technology Tests that are reliable, capable of being quickly administered in the field and where the process is defendable in court cases are essential to identification and arresting of impaired drivers. Law enforcement officers should also receive any necessary training to ensure test results are accurate and procedures are properly followed to eliminate cases being dismissed on technicalities. Saturation patrols Targeted saturation patrols cover a wider area than sobriety checkpoints and encompass every vehicle within the patrol area. Enforcement personnel from multiple agencies work together to observe every vehicle possible for signs of impaired driving as part of these efforts. Targeted saturation patrols can be used to complement checkpoints or in jurisdictions where checkpoints are not allowed. Communication and marketing efforts that accompany enforcement campaigns can increase their effectiveness. The CDC recommends mass media campaigns to reduce impaired driving. Screening and interventions There are indications that repeat DUI offenders are likely to have alcohol abuse problems. This is a health and community issue. Reducing the likelihood of DUIs in support of a TZD vision will require intervention that addresses the root of the problem: alcohol abuse. Medical screening and interventions for convicted DUI drivers, especially repeat offenders, is a proactive approach to reducing future underage drinking and increasing the awareness of the dangers of binge drinking and drinking and driving to teens and young drivers. Interventions with teens and young drivers may also reduce the incidence of substance abuse related fatal crashes later on in life. Other types of intervention can include limiting access to alcohol and promoting responsible beverage 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY 19

28 CHAPTER 4 TZD EMPHASIS AREAS service. The CDC recommends these types of community intervention efforts to reduce impaired driving. DUI courts Traffic courts dedicated to prosecuting DUIs can better identify repeat offenders and levy appropriate punishments. Enhanced system administration, data management systems, and record keeping can improve the efficiency of the adjudication process and support performance measurement where officials are keeping track of the number of citations that end in conviction and the number of citations that result in dismissal or reduced fines. DUI courts may also be better equipped to determine when additional counseling or other support is needed to address problems related to alcohol abuse. Coordination with private sector establishments serving alcohol Transportation professionals should work in cooperation with alcohol sales establishments to address excessive drinking and drunk driving. This may include subsidized taxi fares in bar districts and providing late night transit options and designated driver programs in order to reduce drunk walking. Sobriety checkpoints Sobriety checkpoints are a system whereby law enforcement officers stop drivers to identify levels of alcohol impairment. There is strong evidence suggesting that sobriety checkpoints are successful in reducing alcoholrelated crashes and their associated fatalities and injuries (18 percent reduction of crashes involving alcohol, 22 percent reduction in fatal crashes involving alcohol, and overall crash reduction of 18 percent). The CDC strongly recommends the use of sobriety checkpoints because of their effectiveness. A potential benefit of sobriety checkpoints is the opportunity to arrest drivers for nontraffic offenses such as outstanding warrants, unlicensed/ suspended license driving, or vehicle defects. This strategy provides significant economic benefits to the public. Primary seatbelt laws Enhanced traffic enforcement through primary seatbelt laws increases the ability of officers to make contact with drivers. Through these contacts, impaired drivers can be identified and prosecuted. Implement policies that prevent excessive consumption of alcohol, a.k.a. binge drinking There are indications that repeat DUI offenders are likely to have alcohol abuse problems. This is a health and community issue. Reducing the likelihood of DUIs in support of a TZD vision will require intervention that addresses the root of the problem: alcohol abuse. Proactive strategies to reduce underage drinking, increase the awareness of the dangers of binge drinking and drinking and driving to teenagers and young drivers may also reduce the incidence of substance abuse related fatal crashes later on in life. Binge drinking is a significant national issue. According to the CDC, adults consume approximately 75 percent of their alcohol in the form of binge drinks. This proportion rises to 90 percent for youth under 21 years of age. Those aged18 20 have the highest proportion of binge drinkers. Binge drinking is more common among males than females. Binge drinkers are 14 times more likely to drive while impaired than nonbinge drinkers. Implement policies (incompliance checks, responsible beverage server training, etc.) that prevent access to alcohol by persons under the age of 21. Agencies that monitor the sale of alcohol can use aggressive policies for alcohol sales establishments that sell to teens. The CDC recommends maintaining the current legal drinking age of 21 years. Educate judges on the impact of impaired driving on motor vehicle related fatalities Transportation professionals should make information available to judges on the effects that impaired driving has on fatalities and serious injuries. This includes information on how to better identify repeat offenders. With better information, judges can better assess appropriate penalties and fines, possibly reducing the number of repeat offenders who receive reduced fines and sentencing despite prior convictions. Increase fines and penalties associated with impaired driving Fines and penalties, including jail time, for impaired driving need to be severe enough to be a real deterrent and effect change in behavior ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY

29 CHAPTER 4 TZD EMPHASIS AREAS Efforts to set appropriate fines within each state should continue, especially in states where fines are small. Eliminate Distracted Driving Fatalities Scope of the Problem Distracted driving includes activities such as texting, talking on a cell phone, and eating. Based on available data, distracted drivers contributed to approximately 16 percent of the 2009 fatalities. However, this percentage could actually be higher. It can be difficult to determine the full extent of this issue due to driver deaths, lack of witnesses, lack of evidence at a crash scene, and hesitance to admit these behaviors. A survey of national attitudes and behaviors toward texting and cell phone use while driving indicates that most drivers will answer a cell phone call while driving, but would feel unsafe riding in a vehicle in which the driver is texting. Cell phone use was reported as the major distraction in nearly 20 percent of the distracted driving fatal crashes. The proportion of drivers distracted at the time of a fatal crash has risen steadily over the last few years. Teen drivers are at a higher risk than other age groups for involvement in a fatal crash when engaging in distracted driving. Approximately 16 percent of teens involved in fatal crashes in 2009 were distracted at the time of the crash. Studies have estimated that a texting driver creates a risk for a crash that is 23 times greater than a driver who is not distracted. Distracted drivers are more likely to be involved in single vehicle and rearend crashes. Potential Strategies Laws, including texting bans, and enforcement In many cases, current laws related to the use of communications technology are secondary laws. Primary laws will strengthen the ability of law enforcement to enforce these laws. Additional restrictions may also be placed on teen drivers that are still within their graduated driver licensing period to educate them about the risks associated with distracted driving. Laws should address both talking on cell phones and text messaging. Whenever possible, transportation professionals should encourage adopting a complete ban of cell phone use in vehicles, since emerging research has shown that hands free cell phone use can still contribute to fatalities because it can decrease brain activity devoted to the driving task by 37 percent. Great strides have been made in this area. Several states have enacted laws that prohibit texting while driving. The Federal Government prohibits federal employees from texting while driving. The Federal Motor Carrier Safety Administration also prohibits texting and driving among commercial vehicle drivers. Employer policies Companies can strengthen distracted driving policies and consequences for those who text and drive or use cell phones while driving during work hours. Companies and professional organizations can also ask their employees and member to participate in personal pledge programs. This would include individuals pledging not to drive distracted and who ask their friends and family to assist them in keeping to their pledge outside of work. Technologies to prohibit or limit cell phones and electronic equipment while vehicle is in motion Vehicle manufacturers and in vehicle sound system manufacturers have started implementing measures to suspend certain activities while a vehicle is in motion. For example, a vehicle may provide hot spot internet access while stationary, but these services are suspended as soon as the vehicle starts moving; sound systems with Bluetooth technology may prevent a driver from making calls while a vehicle is in motion. Vehicle technologies are emerging that can detect distracted driving. In such cases, in vehicle warnings may sound to alert the driver. Education of judges on the impact of distracted driving on motor vehicle related fatalities Transportation professionals should make information available to judges on the real impact distracted driving has on lives. This may also include information on the number of related fatalities and how to better identify repeat 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY 21

30 CHAPTER 4 TZD EMPHASIS AREAS offenders, even if this is their first recorded offense. Through this, judges can better assess appropriate penalties and fines, possibly reducing the number of repeat offenders that receive reduced fines and sentencing despite citations. Eliminate Aggressive Driving and Speeding-Related Fatalities Scope of the Problem General perceptions among drivers and law enforcement officers suggest that aggressive driving is becoming more common on the nation s roadways. According to NHTSA, aggressive driving behaviors typically include speeding, following too closely, changing lanes improperly, and disobeying traffic control devices (red light running is deemed one of the most dangerous forms of aggressive driving). The Surface Transportation Policy Project estimated that aggressive driving contributes to 56 percent of fatal crashes. Aggressive behaviors can be triggered by driver frustration due to delay and the actions of other drivers. An American Automobile Association study estimates that up to 5 percent of annual injuries and fatalities are related to aggressive driving. Speeding is one characteristic of aggressive driving. Approximately 32 percent of the 2010 fatalities were speeding related. Half of the fatalities occur on roads with posted speed limits of 55 mph or higher. Nearly 76 percent of the fatalities on these high speed roads occurred in rural areas. Speedingrelated fatalities occur about 1.5 times more often in single vehicle crashes than in multiple vehicle crashes. Potential Strategies Automated traffic enforcement: red light running, pervasive automated speed enforcement on freeways and arterials, applications in school and work zones Automated traffic enforcement of red light running and speeding has been proven effective in numerous jurisdictions and situations. The goal of a speed management program should be to encourage motorists to travel at appropriate speeds on all roadways, and automated enforcement can provide a continuous presence at key locations. In situations where automated enforcement is not allowed, some agencies have been successful in first gaining acceptance in specific situations, such as school zones and work zones, because of the willingness of the public to protect vulnerable groups. Real time speed feedback warning systems: in vehicle and on roadside Drivers may not always realize how fast they are traveling or be aware of the posted speed limit for the roadway. Speed feedback systems traditionally use roadside infrastructure. There is also the potential that these systems may be developed in the future as invehicle systems. Feedback warning systems can provide drivers the information they need to self correct their speed. Roadside systems, especially when accompanied with enforcement, have been shown to be effective. However, the effectiveness may diminish over time, especially after temporary systems have been moved to the next location. Invehicle systems, however, can be ever present and provide this information in more situations. Appropriate speed limits and other speed management techniques Techniques to address speeding do not have to rely on enforcement. Posting appropriate speed limits, designing infrastructure, and providing driver feedback can be used to increase driver self enforcement. Additionally, warning signs provide drivers information of situations calling for increased alertness and slower speeds, such as horizontal curves, schools, hospitals, etc. Rigorous enforcement programs Highly visible traditional enforcement can be an effective method to encourage compliance with speed limits. Speed enforcement also can have the secondary benefit of identifying unbelted, impaired, unlicensed, and distracted drivers. Routine enforcement, in addition to saturation patrols, is important to encourage year round compliance. Education of judges on impact of aggressive driving and speeding on motor vehicle related fatalities Transportation professionals should make available to judges the real impact aggressive driving has on lives. This may also include information on the number of related fatalities and 22 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY

31 CHAPTER 4 TZD EMPHASIS AREAS how to better identify repeat offenders, even if this is their first recorded offense. Through this, judges can better assess appropriate penalties and fines, possibly reducing the number of repeat offenders that receive reduced fines and sentencing despite citations. Eliminate Fatalities in Crashes Involving Teen Drivers Scope of the Problem Teen drivers were involved in 11 percent of the fatalities in The involvement rate of male and female teen drivers in fatal crashes per 100,000 licensed drivers is higher than for any other driver age group. Traffic crashes are the leading cause of death among teens in the United States, accounting for nearly one third of teen fatalities. Nearly twice as many male teens were killed in crashes than female teens. Male teen drivers with passengers correlate to a higher risk of causing a fatal crash. Nighttime driving also poses a higher crash risk for teen drivers than daytime driving. Teens have the lowest rate of restraint use among all age groups. Potential Strategies Graduated licensing laws States that have passed graduated drivers licensing have seen great success in reducing the relative risk of novice drivers. Nighttime driving restrictions, probationary periods, supervised driver training, passenger limits, bans on cell phones and texting, and zero tolerance DUI laws are example elements of a comprehensive graduated licensing. Education and enforcement of GDL programs is a critical element to their success. Peer operated programs have been found to be successful in reducing teen related fatalities. Parent education programs Parents that are active in monitoring teen driving behavior and offering instruction can help improve teen driving practices. Programs through schools and driving courses should make this information readily available. To increase parent participation, programs could require parent participation for their children to be able to successfully complete the driver training course or be allowed to drive a vehicle to school. Driver monitoring systems In vehicle monitoring systems are increasing, whether available through insurance incentives or as options on new vehicles. These systems allow parents and driving instructors to identify and address behaviors that result in unnecessary risk. Eliminate Fatalities in Crashes Involving Older Drivers Scope of the Problem By the year 2030, it is expected that one in five Americans will be age 65 or older. As people age, a decline in sensory, cognitive, or physical functioning can put them at greater risk as a driver, as well as make them more vulnerable to injury (as a driver or passenger) once in a crash. The number of licensed older drivers increased by 20 percent between 1999 and 2008, while the total number of licensed drivers increased by only 11 percent during that same period. This indicates that older drivers continue to depend on automobiles for meeting their transportation needs, even more so now than in the recent past. 5 Driving allows older adults to maintain their independence an instrumental activity of daily living (IADL). 6 Access to alternative modes can be limited in some areas of a region, making it particularly difficult for older drivers to decide to stop driving all together. Despite the perception that exists, older drivers are involved in fewer crashes (per 100 thousand licensed drivers) than younger drivers. These drivers also engage in safer behaviors: higher seatbelt wearing rates and a lower rate of drinking and driving crashes. 7 The number of older drivers involved in fatal crashes has declined over the past decade. From 2000 to 2009, the total population age 65 and over increased by 13 percent, yet the number of driver fatalities for this age group declined by 17 percent. 5 NHTSA (2009). 6 CDC. 7 U.S. Department of Transportation (2003). Safe Mobility for a Maturing Society: Challenges and Opportunities. Washington, D.C. 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY 23

32 CHAPTER 4 TZD EMPHASIS AREAS While progress has been made in the area of older driver safety, there were still 5,593 fatalities in 2009 that involved drivers age 65 and older, so there is still more work to be done. Drivers aged 64 and older were involved in 20 percent of the fatalities in Nearly 12 percent of the drivers involved in fatal crashes were aged 64 and older. Although older drivers tend to be involved in fewer crashes, they also tend to drive fewer miles. Compared to the general population, the traffic crash fatality rate (based on miles traveled) for people aged is one third higher. This rate continues to increase with age. Crash survivability is as much of a concern as crash avoidance among older drivers. Potential Strategies Improve licensing policies and testing frequency People experience a decline in visual, mental, and physical capability through the normal aging process. Losses in specific functional capabilities such as vision (contrast sensitivity, visual acuity, nighttime vision), perceptual/cognitive ability (reaction times, ability to divide attention, shortterm memory), and physical fitness (head/neck flexibility) can affect a person s ability to drive safely. However, not everyone experiences this decline in capability at the same rate or at the same age. In other words, age along does not determine fitness to drive. In fact, some 75 year olds are every bit as capable of operating a motor vehicle as safely as the average 55 year old. Therefore, chronological age should not be a determining factor in one s ability to drive safely. As a condition for every driver s license renewal in the U.S., without regard to age, individuals should be required to demonstrate minimum level of visual, mental, and physical capability. Those individuals flagged due to poor performance can be referred for more in depth review before a licensing decision is made. This screening could be performed by states or by private sector providers assuming there is appropriate protection for individuals privacy, and adherence to common standards and procedures for test administration and scoring. Education on driver rehabilitation Older driver rehabilitation can extend the time that older drivers can safely operate a vehicle. 8 Safe driving/walking/cycling courses for older Aging individuals may benefit from retraining courses that cover many aspects of traffic safety, including the driving task. Voluntary participation in courses is preferred, and can be encourage if results are kept confidential. However, courses should offer the option to seek additional training and assistance in cases where people do not successfully complete the course. Medical review boards Medical review boards can provide independent and expert review of elderly driver capabilities. In cases where a driver is identified as not being capable, the review board should also help identify if any rehabilitation or retraining could help restore the individual s skills. Roadway and vehicle enhancements Until recently, highway design and engineering practices did not explicitly consider the needs of older drivers. In 1998, FHWA published the Highway Design Handbook for Older Drivers and Pedestrians to supplement standard design manuals with design guidance addressing the specific needs of older drivers and pedestrians. Recommended countermeasures include such issues as: advance warning signs; advance guide signs and street name signs; increased size and letter height of roadway signs; all red clearance interval at signalized intersections; protected left turn signal phases at high volume intersections; offset left turn lanes at intersections; improved lighting at intersections, horizontal curves, and railroad grade crossings; improved roadway delineation; raised channelization; reduced skew angle at intersections; and improved traffic control at work zones. Update design policies and practices for roadways and vehicles to reflect the needs of older drivers Incremental changes in highway design that better accommodate older drivers have been slowly incorporated into national and state level design guides, but more is needed. Additionally, these /Features/2004/f aspx ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY

33 CHAPTER 4 TZD EMPHASIS AREAS infrastructure improvements have been slow to be implemented because of their cost. Increase Restraint Use Scope of the problem In 2010, nearly 64 percent of drivers killed in fatal crashes were not restrained. Among all vehicle occupants, nearly 33 percent of those killed were not restrained (seat belts for adults and proper seating for children under age 19). The incidence of children not restrained was highest in the 16 to 19 age group and lowest in the 0 to 5 age group. Studies show that although child car seat use rates exceed 90 percent, approximately 62 percent are not installed properly and 85 percent are misused. Those drivers with the highest crash risk (generally young, male drivers) exhibit the lowest restraint usage rates. Within a year, more than 618,000 children ages 0 12 rode in vehicles without the use of proper restraints at least some of the time. 9 Child safety seats reduce the risk of death in passenger cars by 71 percent for infants, and by 54 percent for toddlers ages 1 to 4 years. 10 Booster seats for children ages 4 to 7 years reduces injury risk by 59 percent compared to seat belts alone. 11 The CDC identified 100 percent restraint use by all occupants on all trips as a goal as part of Winnable Battles, a public health priority initiative. 12 Potential Strategies Primary seat belt laws Restraints are shown to be 50 percent effective in preventing fatalities for seat occupants. Therefore, efforts should continue to pass primary seat belt laws for all vehicle occupants. 9 Greenspan AI, Dellinger AM, Chen J. Restraint Use and Seating Position Among Children Less Than 13 Years of Age: Is It Still a Problem? Journal of Safety Research : Department of Transportation (US), National Highway Traffic Safety Administration (NHTSA), Traffic Safety Facts 2008: Children. Washington (DC) Committee on Injury, Violence, and Poison Prevention (2011). Child Passenger Safety. Pediatrics. 1;127(4): The CDC Task Force strongly recommends primary seat belt laws over secondary enforcement laws. As a primary law, law enforcement officers can stop drivers and cite them for not wearing a seatbelt. As a secondary law, an officer can only stop an unrestrained driver for another violation. Primary seat belt laws have proven to be effectiveness in increasing their use and preventing fatalities. In addition, the primary law promotes community safety because it provides the opportunity to arrest drivers for nontraffic offenses such as outstanding warrants, unlicensed/suspended driving, or vehicle defects. The CDC also strongly recommends child safety seat laws and recommends enforcement of them to prevent child fatalities. Strengthen state child safety seat legislation to support federally approved child restraint use While some states require the use of federally approved child restraints, others lack the legislation to even meet this minimum requirement. Properly restrained children will reduce fatalities. High visibility enforcement Enforcement campaigns have been shown to increase seat belt use. Keys to a successful campaign include highly visible saturation patrols, related media prior to and following the enforcement patrols, and continued focus on seat belt enforcement following a targeted campaign. Campaigns can occur statewide during holidays or other high travel weekends, or could be conducted by local agencies or regions as the need arises. The CDC recommends enhanced enforcement efforts based on evidence of their effectiveness in increasing safety belt use and reducing fatal crashes. Nighttime enforcement Seat belt use is less common in nighttime fatal crashes. In 2008, twothirds of the vehicle occupants in nighttime fatal crashes were not restrained. This proportion decreased to 45 percent for daytime fatal crashes. Seat belt enforcement is more difficult during nighttime driving conditions because officers may not be able to see inside the vehicle. Currently, special seatbelt checkpoints and increased enforcement levels are techniques available to help increase nighttime seat belt use. In the future, 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY 25

34 CHAPTER 4 TZD EMPHASIS AREAS additional technologies and techniques will need to be identified to assist officer with detection of unbelted vehicle occupants at night. Advanced seat belt reminder systems Parent education programs (focus on child restraints and child occupant safety practices) Since data indicates that the majority of child safety seats are improperly installed or misused, outreach to parents and others responsible for transporting children is a critical component of increased restraint use. This outreach may occur through hospitals, day care facilities, fire stations, and schools. Typical information covered includes the need for restraining children, how to get assistance with child safety seat installation, how to select an appropriate child safety seat based on age, weight and height of the child, and best practices for installing a child safety seat (rear facing versus forward facing, selecting a seating position, etc.)., Programs to provide approved child safety seats to parents and caregivers needing financial assistance also known as Distribution and Education Programs. These programs provide child safety seats to parents on a loan basis, as a rental (low cost) or a giveaway. There is strong evidence that this strategy increases child safety seat use (23 percent increase on average in a range of 4 to 62 percent). These programs have been successful regardless of the characteristics of the area (urban, rural, and different income populations). The CDC strongly recommends distribution and education programs to promote use of child safety seats to parents who cannot afford them or do not understand the importance of them. Driver monitoring systems Text Increase fines for violating seat belt legislation Fines for not using or properly using seat belts or properly restraining children need to be high enough in order to be a real deterrent and effect change in behavior. Efforts to set appropriate fines within each state should continue, especially any state where fines are small. Eliminate Pedestrian Fatalities Scope of the problem Approximately 13 percent of the fatalities in 2010 were pedestrians, which represents an increase over the 2009 pedestrian fatalities. While pedestrian fatalities are much lower than what they were in 1994, as shown in Exhibit 10, progress in the last few years has been less than encouraging. EXHIBIT 10: Pedestrians Killed in Motor Vehicle Crashes ( ) 6,000 5,000 4,000 3,000 2,000 1, Source: FARS, NHTSA. More pedestrians die in urban areas (72 percent) than in rural areas. Approximately 75 percent of the pedestrian fatalities occurred on a roadway segment, rather than at an intersection. Pedestrian fatalities peak between the hours of 5pm and 11pm during the weekdays and weekends. Impaired driving and walking are present in almost half of the pedestrian fatalities. The estimated costs of injury and death among children ages 0 to 12 is $5.2 billion per year. The predominant age group for pedestrian fatalities is for 45 to 54 year olds. Older pedestrian fatalities remain a concern, with onequarter of the pedestrian fatalities represented by pedestrians age 60 and older. The fatality rate for pedestrians over the age of 74 is nearly 20 percent greater than the rate for the 45 through 54 age group. Potential Strategies Pedestrian awareness programs: pedestrian visibility impaired walking (pedestrians and alcohol) Modifying behavior is a difficult task that can rarely be accomplished through one initiative alone. Instead, a culture of safe behavior must be 26 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY

35 CHAPTER 4 TZD EMPHASIS AREAS created so that unsafe behaviors are considered to be outside of the norm by the majority of people, and a desire to conform to expectations encourages most people to comply with safe behaviors. In the case of pedestrian safety, this involves both education and enforcement. Schools and public health organizations can provide instruction in safe walking and crossing behaviors to children. Advocacy groups can provide training to populations of pedestrians with special needs. Awareness of pedestrians and safe driving behaviors can be included in driver s education classes and on drivers permit tests. But these behaviors have to be reinforced by holding pedestrians and drivers accountable when they don t practice safe behavior. Enforcement initiatives (similar to DUI check points or red lightrunning crack downs) should be conducted to ticket drivers and pedestrians who don t obey right ofway laws or traffic control devices, so that consequences for unsafe behaviors are clear and immediate. As with drunk driving, drunk walking is a major factor in pedestrian fatalities and is a challenge to combat. While there is a social stigma associated with drunk driving, people who have been drinking are typically encouraged to choose walking, rather than driving home, even though this may not eliminate their risk of fatality. Addressing alcohol abuse is an issue for the entire community, as its consequences are seen in every sector. However, because of the degree to which alcohol is involved in motor vehicle and pedestrian fatalities, transportation professionals should support initiatives that address drunk walking as well as drunk driving, such as subsidized taxi fares in bar districts, providing late night transit options, and having designated driver programs. Education programs for school age pedestrians School age children present a particular risk because of their size and lack of experience with traffic. Education programs through schools, police, hospitals, and other organizations that target young children are important to helping them stay safe when walking. Programs should also reach out and involve parents whenever possible. Coordination with private sector establishments serving alcohol Transportation professionals should work in cooperation with alcohol sales establishments to address drunk walking. This may include subsidized taxi fares in bar districts, providing late night transit options, and designated driver programs in order to reduce drunk walking. Design of facilities for pedestrians with disabilities Many older pedestrians and pedestrians with disabilities are not able to drive and rely on walking as an important mode of transportation. These pedestrians are particularly vulnerable because they may have mobility, cognitive, hearing or vision limitations that prevent them from recognizing or quickly avoiding potential conflicts with motor vehicles. Because these pedestrians rely on walking and transit to complete necessary trips, pedestrian facilities near bus stops, hospitals, independent or assisted living facilities, and in areas with populations of pedestrians with special needs should be designed to be accessible and easily navigable for these pedestrians. Infrastructure/roadway improvements to support speed management In order to achieve near zero pedestrian fatalities, physical or temporal separation of pedestrians with vehicular traffic travelling at speeds exceeding 30 mph is necessary. This objective requires consideration of a planned walking environment that addresses managing traffic speeds. Traffic speeds should be kept below 30 mph in residential, urban environments and in other locations where walking trips are common (such as near schools, churches, shopping centers, and dining/entertainment districts). A great deal of guidance is available regarding treatments that slow traffic in several different resources. Traffic signals in high density walking areas should be timed so that traffic progresses slowly through the corridor and pedestrians are given ample time to cross safely. The infrastructure, markings, and signage should make clear to motorists that pedestrians are to be expected, and that driving with caution is required. 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY 27

36 CHAPTER 4 TZD EMPHASIS AREAS Infrastructure/roadway improvements to reduce conflicts with pedestrians In order to achieve near zero pedestrian fatalities, physical or temporal separation of pedestrians with vehicular traffic travelling at speeds exceeding 30 mph or higher is necessary. Treatments that provide extra refuge space for pedestrians, sidewalks, separate crossing facilities and have pedestrian phases at signalized intersections are examples of methods to reduce vehicle conflicts with pedestrians. Pedestrian or shared use trails that connect pedestrian origins and destinations away from the roadway may be appropriate, especially in suburban and rural areas where paths can be built through available space. In urban areas, where right of way may not be available for separate pedestrian facilities, pedestrian routes may be separated from traffic by a barrier. Grade separation may be required at intersections to prevent pedestrians from coming into conflict with high speed traffic. Where protected pedestrian routes are provided, pedestrians should be discouraged from using alternate, unprotected routes through the design of the facility, fencing, and signing. The visibility of pedestrians also plays an important role in minimizing conflicts. Roadway and intersection lighting can help make drivers more aware of nearby pedestrians in dark conditions. Sight distance near pedestrian crossings should also be considered, and this includes obstructions such as parking lanes, trees, shrubs, utility poles, and other objects that might block a pedestrian from the view of a motorist. Initiatives that educate pedestrians about increasing their visibility through clothing choice, reflective materials and hand held lighting are also important. Improve traffic control devices The visibility of pedestrians also plays an important role in minimizing conflicts. Roadway and intersection lighting can help make drivers more aware of nearby pedestrians in dark conditions. Sight distance near pedestrian crossings should also be considered, and this includes obstructions such as parking lanes, trees, shrubs, utility poles, and other objects that might block a pedestrian from the view of a motorist. Initiatives that educate pedestrians about increasing their visibility through clothing choice, reflective materials and hand held lighting are also important. Develop and use new design guides Promote use of existing/forthcoming guidelines Promote use of existing/forthcoming guidelines such as the AASHTO Guide for the Planning, Design, and Operation of Pedestrian Facilities and incorporate pedestrian considerations throughout the program and project development process. The use of these guides during the planning and preliminary design stages of projects would be particularly beneficial in terms of the ability to more fully account for pedestrian safety specific considerations, access, and interaction with other modes of transportation. Promote vehicle designs that lower risk for pedestrian fatalities in motor vehicle crashes changes in vehicle design can impact the likelihood of a pedestrian dying when hit. These include use of the grill or collapsible automotive manufacturer logo designs, pedestrian airbags, use of side mirrors that can give way (through springs) when horizontal pressure is applied, recessing door handles, using alternative bumper designs, and the use of materials and spacing of vehicle front elements in manner that will reduce the impact on a pedestrian. Eliminate Bicyclist Fatalities Exhibit 11 shows that while the number of fatalities reduced since 1994, progress has been slow in reducing bicyclist fatalities over the last few years. Compared to all fatalities, the portion bicycle fatalities increased from 1.7 in 2000 to 1.9 in POTENTIAL RESOURCE bicycling.org, Pedestrian and Bicycle Information Center nrd.nhtsa.dot.gov/pubs/ pdf ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY

37 CHAPTER 4 TZD EMPHASIS AREAS EXHIBIT 11: Bicyclists Killed in Motor Vehicle Crashes ( ) Source: FARS, NHTSA. Less than two percent of the 2010 fatalities involved bicyclists. Investigations suggest that nearly threefourths of these fatalities were related to the bicyclist error. Approximately 13 percent of the fatalities were children under the age of 16. The largest number of bicyclist fatalities was among those aged During the weekday, most of the fatalities occurred between the hours of 3 p.m. and 9 p.m. However, this time the numbers increase in the period 6 p.m. to 12 a.m. on the weekends. Impaired cycling also appears to be a challenge. 14 Bicyclist fatalities are also more common in urban areas, representing 70 percent of the bicyclist fatalities in Most of bicyclist fatalities occur in non intersection areas of the network. The most common cause of death and incapacitating injuries for bicyclists is head injury. Potential Strategies Bicycle helmet laws and enforcement The purpose of bicycle helmets is to address the majority of injuries leading to death and incapacitating injuries among bicyclists. 15 Evidence suggests that bicycle helmet use only increases substantially with the introduction of laws requiring all bicyclists, regardless of age and skill, to use a helmet when riding on a public or trail. Legislation 14 nrd.nhtsa.dot.gov/pubs/ pdf e.htm. requiring bicycle helmet use will benefit from supporting legislation that allows for targeted enforcement during weekends and on popular bicyclist routes, to increase compliance. Improve roadway and intersection design Where insufficient space is provided for vehicles to pass bicyclists, bicyclists may tend to ride as close to the curb or parked cars as possible, putting them at risk of dooring crashes or collisions due to gutter pans, uneven pavement surfaces, or other roadway and roadside objects. Constructing bicycle paths, lanes or wider travel lanes provides separation between bicyclists and motor vehicles and may reduce related collisions. Over a third of bicycle fatalities occur at intersections, indicating that bicyclists and drivers need a better set of rules to follow when sharing intersection space. Drivers should know where to expect bicyclists at the intersection and the appropriate locations to check for their presence before making turns. Marked bicycle lanes through intersections, and bike boxes placed in front of the vehicle stop bar at a signalized intersection, can help bicyclists know where to travel and help drives know where to look. Improve traffic control devices Bicyclists traveling on side streets should be able to access pushbutton signal actuators at actuated signalized intersections. This assists the bicyclist by not forcing them to cross mainline traffic on a red light when no side street traffic is present to actuate the signal. Develop and use new design guidelines Bike lanes and sufficiently wide shared use lanes are treatments that are designed to create enough space for bicyclists and vehicles to travel side byside. Research is ongoing to provide guidance on the appropriate width and characteristics of these facilities to maximize safety. Education and enforcement of traffic laws applicable to bicyclists Modifying behavior is a difficult task, and is typically only changed permanently through a shift in cultural norms. In order to increase the use of helmets, reflective equipment and clothing, and bicycle lights, these behaviors must become the expectation and the norm. Early and consistent education programs, 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY 29

38 CHAPTER 4 TZD EMPHASIS AREAS along with enforcement of traffic laws, help create these norms. Bicycle safety should not rest solely on the shoulders of motorists. Traffic laws should include expectations for bicyclist behaviors and actions holding the bicyclist accountable to traffic laws. Wrong way riding, riding without lights or reflective gear at night, and disobeying traffic signals should all result in tickets to bicyclists. Similarly, education about safely sharing the roadway should be given to bicyclists and motorist. Both road users should also be educated about bicycle right of way, the operation of bicycle lanes (especially at intersection and auxiliary lanes), and bicyclist hand signals. This can be provided through driver safety courses and included on driver permit and licensing tests. Legislation, education and enforcement to curtail distracted bicyclist riders Distraction has recently been recognized as a frequent contributing factor to vehicle crashes. It follows that if motorists are increasingly distracted, the likelihood of them noticing a nearby bicyclists decreases. In Florida, inattention was a factor in 38 percent of bicycle fatalities, although bicyclists were more likely to be faulted for inattention than motorists in these incidents. While some distractions affecting motorists also affect bicyclists, such as cell phone use or talking to other riders, bicyclists may also be coded as inattentive when they fail to yield or dart out from driveways unexpectedly. These behaviors are more often witnessed among children, who are not as familiar with traffic regulations and do not have the same sense of caution that an adult who is also a driver might have. This strategy first calls for a comprehensive review and study of existing laws and enforcement to determine what legislation is needed, followed by education and enforcement efforts to see that laws are effective. Driver education to raise awareness of and behaviors around non motorized traffic Modifying behavior is a difficult task, and is typically only changed permanently through a shift in cultural norms. In order to expect drivers to drive responsibly around bicyclists, such behaviors must become the expectation and the norm. Early and consistent education programs, along with enforcement of traffic laws, help create these norms. Education about safely sharing the roadway should not be given only to bicyclists. Motorists should be educated about bicycle right of way, the operation of bicycle lanes (especially at intersection and auxiliary lanes), and bicyclist hand signals. This can be provided through driver safety courses and included on driver permit and licensing tests. Targeted education programs for school age bicyclists School age children pose several additional risks, including often riding on smaller bicycles that may make them harder to see, lesser understanding of traffic laws, and other potential risks while riding. To address, targeted education programs that help school age children learn and follow basic bicycle safety practices are need. Infrastructure/roadway improvements to support speed management The higher the relative operating speeds of through traffic sharing a facility with bicyclists, the higher the risk for bicycle vehicle crashes and for increased injury severity of those crashes when the bicyclist is hit. Particular considerations may include such things as the evaluation of features that may encourage higher speeds, and mobility solutions that limit the ability of law enforcement to enforce the posted speed limit. Infrastructure/roadway improvements to reduce conflicts with bicyclists Consideration of conflict points with bicyclists and other road users and how best to deal with these interactions, particularly at intersection and crossing areas, is beneficial in creating an environment that reduces the risk of bicyclist crashes. Particular considerations may also include the visibility of bicyclists and other users to increase driver and rider expectation ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY

39 CHAPTER 4 TZD EMPHASIS AREAS Eliminate Motorcyclist Fatalities Although motorcycles account for a small portion of registered vehicles, motorcycle drivers and passengers accounted for approximately 14 percent of the fatalities in Exhibit 12 shows the trend of motorcyclist fatalities from 1994 through The cost of these crashes is estimated at $12 billion per year 16 with the public contributing a substantial portion because of lost tax revenue, and insurance premiums and taxes. 17 EXHIBIT 12: Motorcyclists Killed in Motor Vehicle Crashes ( ) 6,000 5,000 4,000 3,000 2,000 1, Source: FARS, NHTSA. However, motorcyclist fatalities continue to trend upward among those 50 years of age and older. The highest number of fatalities among motorcycle drivers in 2010 occurred among those aged Motorcycles are involved in fatal crashes 22 times more often per 100 MVMT than passenger cars or light/heavy trucks. Approximately 75 percent of the motorcycle drivers or passengers killed had some amount of alcohol in their system. POTENTIAL RESOURCES walkinginfo.org, Pedestrian and Bicycle Information Center. CDC Injury Prevention & Control, Motorcycle Safety, Florida Motorcycle Strategic Safety Plan and Motorcycle Strategic Safety Plan Website, Florida Department of Transportation (website with resources). Potential Strategies Motorcycle Helmet Legislation Unhelmeted riders are twice as likely to suffer from traumatic brain injuries (TBI) and the hospital charges for those with TBIs are 13 times higher than those that did not have a TBI. Motorcycle helmet laws are proven strategies in improving motorcyclist safety the only countermeasure with such status for motorcyclist safety in NHTSA s Countermeasures That Work Helmet laws in the US include universal laws (helmets required for all riders of all ages) and partial laws (requiring helmet use for a subset of the motorcyclists). Exhibits 13 and 14 demonstrate the importance of a universal helmet law to achieve success in increasing helmet wearing rates. Exhibit 13 shows the change in helmet use rates after the enactment of a universal helmet law. Exhibit 14 summarizes the change in helmet use rates after a universal helmet law was repealed. EXHIBIT 13: Rate of Helmet Use Before and After Repealing a Universal Helmet Law 16 Naumann RB, Dellinger AM, Zaloshnja E, Lawrence BA, Miller TR. Incidence and Total Lifetime Costs of Motor Vehicle Related Fatal and Nonfatal Injury by Road User Type, United States, Traffic Inj Prev. 2010;11(4): Hundley JC, Kilgo PD, Miller PR, Chang MC, Hensberry RA, Meredith JW, Hoth JJ. Non helmeted motorcyclists: A burden to society? A study using the national trauma data bank. J Trauma. 2004;57(5): Source: CDC, Motorcycle Safety, Rivara FP, Dicker BG, Bergman AB, Dacey R, Herman C. The public cost of motorcycle trauma. JAMA. 1988;260(2): Derrick AJ, Faucher LD. Motorcycle helmets and rider safety: A legislative crisis. J Public Health Pol. 2009;30(2): ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY 31

40 CHAPTER 4 TZD EMPHASIS AREAS EXHIBIT 14: Rate of Helmet Use Before and After Enacting a Universal Helmet Law Source: CDC, Motorcycle Safety, Enactments of universal helmet laws have been associated with a 90 to 100 percent increase in helmet usage, a 20 to 40 percent decrease in fatalities and fatality rates, and a decrease of over 60 percent in serious head and brain injuries. Helmets that are compliant with the Federal Motor Vehicle Safety Standards (FMVSS) Standard 218 are estimated to be 37 percent effective in preventing fatalities in motorcycle crashes. Increasing the use of FMVSS 218 compliant helmets is universally accepted as a key motorcycle safety goal. Laws mandating helmet laws have strong public support, as demonstrated in Exhibit 15 below. EXHIBIT 15: Rate of Helmet Use Before and After Repealing a Universal Helmet Law Targeted enforcement and public education programs Modifying behavior is a difficult task that can rarely be accomplished through one initiative alone. Instead, a culture of safe behavior must be created so that unsafe behaviors are considered to be outside of the norm by the majority of people, and a desire to fit in with expectations encourages most people to comply with safe behaviors. In the case of motorcycle safety, this involves both education and enforcement. Awareness of the effect of risky motorcycle riding behavior can be included in rider training courses. However, these behaviors have to be reinforced by holding motorcyclists accountable when they do not practice safe riding behavior. Rider education on impaired driving, distracted driving, protective equipment, training and licensing riding behavior, such as impaired or distracted driving and protective clothing can be instrumental in determining the likelihood and outcome of a crash involving a motorcycle. While protective clothing does not protect a motorcyclist from head injury, it does provide a level of protection against the rest of the body and can help prevent skin abrasions in a crash. Strong alliances between highway agencies, law enforcement, and the motorcycle rider, safety, and education communities can be beneficial in increasing motorcycle safety awareness. Source: NHTSA Eliminate Fatalities in Crashes Involving Unlicensed Drivers and Drivers with Suspended or Revoked Licenses Scope of the Problem These two groups of drivers tend to be overrepresented in fatal crashes. Studies of fatal crash data conclude that 17 percent of fatal crashes involve at least one driver who is unlicensed or has a suspended/revoked license. Fatal crashes related to impaired driving are more likely to involve these drivers. Among this group of drivers, convicted drunken drivers with a.10 percent BAC are 7 times more likely to be involved in a fatal crash than sober 32 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY

41 CHAPTER 4 TZD EMPHASIS AREAS drivers. This risk increases to 25 with a.15 BAC. Drivers with a suspended/revoked license tend to be male, younger than the average driver age, and more likely to have been convicted for non traffic offenses. Potential Strategies One Driver, One Record, One License The One Driver, One Record, One License program would allow licensing agencies uniform access to information regarding convictions and driver license status. This strategy allows for a requirement on states to report traffic convictions to the licensing state. Primary seatbelt laws Enhanced traffic enforcement, through primary seatbelt laws, sobriety checkpoints, targeted enforcement campaigns, etc., increases the ability of officers to make contact with drivers. Through these contacts, unlicensed drivers or drivers with suspended/revoked licenses can be identified and prosecuted. Collision Types Eliminate Lane Departure Fatalities Scope of the Problem There were 12,628 lane departure fatalities in 2010, which accounted for approximately 38 percent of all traffic fatalities. These crashes tended to occur more often on rural roadways (55 percent) than on urban roadways (45 percent). Lane departure crashes resulted in nearly 42 percent of the fatalities on rural, two lane highways (Exhibit 16). EXHIBIT 16: Lane Departure Fatalities 2006 Source: AASHTO (2008), Driving Down Lane Departure Crashes, Washington, D.C. Potential Strategies Implement speed management Systematic speed management should be a key component of highway infrastructure improvement. The goal should be to encourage motorist to travel at appropriate speeds on all roadways. Both traditional and automated speed enforcement provide effective methods to encourage motorists to travel at the speeds posted for the roadway facility. However, techniques to address speeding do not have to rely on enforcement. Posting appropriate speed limits, infrastructure design, roadway delineation and driver feedback can be used to increase self enforcement by the driver. 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY 33

42 CHAPTER 4 TZD EMPHASIS AREAS Install retroreflective signing and apply pavement markings Enhanced pavement markings (including wider lane lines or more durable pavement markings materials) and better signs/delineation can help drivers navigate during night time and low visibility conditions. Older drivers may also benefit from these treatments in normal driving conditions. In some cases, improved materials can be selected to provide greater retroreflectivity, especially for wet pavement conditions. Install rumble strips and stripes Rumble strips and stripes (rumble strips combined with edge line pavement markings are known as rumble stripes ) create noise and vibration to warn drivers when their vehicle strays from the lane. These devices can be used on either shoulder or in the center of undivided roads. Rumble stripes can be used in situations with narrow shoulders, which makes them a cost effective treatment in many situations. Profiled lane markings are sometimes used between lanes to provide an audible warning as well. This reduces potential for lane departures. These treatments can be challenging in corridors with heavy bicycle traffic (Note: a bicycle friendly pattern has been developed to allow bicyclists regular opportunities to move between the lane and shoulder), corridors with high motorcycle use, or in residential areas due to noise. Install median barrier systems and endtreatments These devices are intended to reduce the severity of a crash when a vehicle leaves the travel way. Median barrier systems prevent errant vehicles from encroaching into the opposite side of the roadway. Cable median barriers are growing in popularity, and, in comparison to concrete medians, can be installed for much less and tend to result in fewer injuries when struck by a vehicle. End treatments are used lower crash severity by absorbing or deflecting vehicle energy into the device, rather than into the vehicle or the occupants. These devices typically protect fixed objects that if struck could result in serious injury. The most common are use is at the end of guardrail or barrier runs. Current designs are developed using the criteria contained in the Manual for Assessing Safety Hardware (MASH). Install warning signs Warning signs provide drivers with the information needed to adjust to roadway conditions, and are particularly relevant at horizontal curves when addressing lane departure fatalities. Advance curve warning signs, speed advisory plaques and curve delineation help drivers identify the curve, encourage drivers to slow their speed prior to entering the curve and remain in their lane while navigating through the curve. Typical devices include advance warning signs, advisory speed plaques, chevron signs and delineators along the curve. Warning signs can also be used to help drivers identify the end of passing zones on two lane highways. This may support improved passing behaviors because it allows drivers to identify how much distance they have to complete a passing maneuver. Create physical separation of oncoming traffic on high crash potential two lane roads (2+1 designs) Providing separation of traffic traveling in opposite direction is an important principle to reducing across centerline crashes. In addition to adding narrow medians or median barriers, this can also be accomplished with non traditional techniques, such as the 2+1 design. The 2+1 design, a European technique, provides alternating passing lanes for rural two lane highways. POTENTIAL RESOURCES AASHTO, Driving Down Lane Departure Crashes A National Priority, Washington, D.C. FHWA, Roadway Departure Safety web page, Office of Safety, Washington, D.C. Vehicle and infrastructure technologies to prevent lane departure fatalities Vehicle and infrastructure technologies are quickly developing and can play a big role reducing lane departure fatalities. Examples include in vehicle systems that alert authorities when a collision occurs; heads up displays, rotating headlights, and animal detection/warning systems that can to help drivers navigate during low visibility situations; and systems 34 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY

43 CHAPTER 4 TZD EMPHASIS AREAS that can detour traffic in an effort to disperse queues quicker and reduce secondary crash risk. Currently, these systems are implemented in a limited number of locations and in luxury vehicle models, but widespread use could result in significant life savings. Eliminate Intersection Fatalities Scope of the Problem Although intersections represent a small portion of the nation s roadway network, approximately 21 percent of the fatalities in 2010 occurred at intersections. The predominant fatal crash type at signalized and unsignalized intersections is an angle collision. Nearly one third of the intersection fatalities occur at signalized intersections (approximately 5 percent of all fatalities). Fatal crashes at signalized intersections primarily involve multiple vehicles, and 85 percent of them occur in urban areas. Unsignalized intersections outnumber signalized intersections and account for approximately two thirds of intersection fatalities. They pose issues not present with signalized intersections, including speed differentials, priority to through movements, and geometrics that are not as refined as urban intersections. Potential Strategies Red light running enforcement One in three drivers report knowing someone that was injured or killed in a red light running crash 18. Where red light running violations persist after addressing any issues related to signal timing and visibility, then red light running enforcement (automated and traditional), is the next logical option. Automated enforcement allows agencies to maintain a continuous presence when used at locations where driver compliance is the key contributing factor to crashes. The installation of red light running cameras does not guarantee reductions in fatalities or even overall safety. Evaluation of individual potential locations would be beneficial. Red light running cameras are more likely to be successful in locations where: 18 A Nationwide Survey of Red Light Running: Measuring Driver Behaviors for the Stop Red Light Running Program, Old Dominion University, June August Traffic signals are coordinated (i.e. unintentional red light running incidents are low) Traffic signal settings provide enough time for the driver to deal with the dilemma zone The prevalence of right angled crashes where drivers that fail to yield right of way was noted as a contributing factor and where these crashes are of high severity. In jurisdictions that do not allow automated enforcement, agencies can support traditional enforcement with the use of confirmation or indicator lights. These devices, typically mounted on the back of a signal, turn on when the signal indication is red. This allows a single officer to wait downstream of a signal and still have visual confirmation if the light turned red before the vehicle entered the intersection. Intersection improvements at rural locations With approximately 38 percent of intersection fatalities in 2010 occurring at rural intersections, increasing driver awareness at rural intersections is an important aspect to reducing intersectionrelated fatalities. This can be accomplished through larger STOP and warning signs/markings on controlled approaches. Warning signs and enhanced guide signs could be used on uncontrolled approaches at locations with greater crash potential. Intersection lighting has also been proven effective at reducing nighttime collisions at rural intersections. Intersection improvements at urban locations Over 60 percent of 2010 intersection fatalities were at urban intersections. Therefore, urban intersection programs are an important part to eliminating intersection fatalities. Strategies to reduce fatalities through intersection improvements at urban locations generally address one or more of the following objectives: improving driveway accesses near these intersections, improving geometric design to reduce the frequency and severity of intersection conflicts, improving sight distance, improving the available gaps in traffic at these intersections, improving driver awareness as they approach intersections, 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY 35

44 CHAPTER 4 TZD EMPHASIS AREAS selecting appropriate traffic control to minimize crash frequency and severity, improving driver compliance with traffic control devices and traffic laws at intersections, reducing operating speeds on specific intersection approaches, and guiding motorists more effectively through complex intersections. Some of the treatments in this strategy area can be particularly valuable in terms of fatality reduction. In urban areas, at both signalized and unsignalized intersections, adding left turn lanes is noted in the HSM as particularly effective reducing injury crashes; including up to a 50 percent reduction for some situations. Likewise, protected left turn phasing is reported to nearly eliminate left turn crashes when switching from permissive left turns. Intersection improvements at unsignalized locations At unsignalized locations, treatments in this strategy area can support increased driver awareness and gap selection for turning movements across traffic. Example enhancement may include adding turn lanes, increasing sight distance by clearing sight triangles on all intersection approaches (includes restricting or eliminating parking near intersections), increasing driver awareness of the intersection with advance signing and pavement markings, and enhancing or installing lighting. Technology is also being developed that can assist drivers when selecting gaps during crossing or merging maneuvers. Innovative intersection and interchange designs Agencies have implemented several options to traditional intersections to improve safety and operational performance. These innovative approaches attempt to minimize conflicts and severity by separating through and turning traffic or by separating higher speed through movements from the cross street traffic to reduce the potential for angle crashes. Some alternative designs implemented in the United States include the continuous flow intersection, indirect turns (a.k.a., median U turn or J turn), partial T interchange, and the diverging diamond. Unconventional implies uncommon configurations. The intersection/interchange layout, horizontal and vertical signage, and alignment at these locations should provide a self explanatory environment that meets driver expectation. Particular caution may be necessary in cases where wrong way movements are more likely to occur or where visibility of signs and markings at night time and rainy conditions may make navigation through the intersection/interchange difficult. Consideration of implementation of roundabouts where appropriate Roundabouts eliminate the left turn movements at intersections. Crashes involving left turn movements are generally more severe than other typical intersection crash types. Roundabouts also generally reduce crash severity because the geometry reduces vehicle entry speeds, eliminating high speed angle and head on crashes. Roundabouts may not be appropriate for all locations, for example, limited right of way, visually impaired pedestrians using the intersection, or traffic volumes dictating a size and number of lanes that is not feasible. POTENTIAL RESOURCE FHWA, Intersection Safety web page, Office of Safety, Washington, D.C. Eliminate Head-On Collision Fatalities Scope of the Problem Head on collisions contributed to nearly 15 percent of the fatalities in These fatal collisions occurred 3 times more often on rural roadways than on urban roadways. Two lane, undivided highways are the predominant facility type on which fatal head on collisions occur. Approximately 23 percent of fatal head on crashes occur on curves, and only 4 percent are related to passing maneuvers. Potential Strategies Install median barrier systems and endtreatments Refer to the discussion of this strategy as part of the Emphasis Area: Eliminate Lane Departure Fatalities. Physical separation of oncoming traffic on high crash potential two lane roads (2+1 design) Refer to the discussion of this strategy as part of the Emphasis Area: Eliminate Lane Departure Fatalities ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY

45 CHAPTER 4 TZD EMPHASIS AREAS Eliminate Fixed Object Fatalities Scope of the Problem Fixed object collisions accounted for approximately 34 percent of the fatal crashes in Fixed objects are struck in 60 percent of the fatal crashes that occur when a vehicle departs the travel way. Trees are the most common fixed object struck in fatal collisions. Potential Strategies Install roadside barrier systems and endtreatments Collisions with roadside barriers are intended to reduce the severity of a crash when a vehicle leaves the travel way by preventing collisions with roadside fixed objects. Roadside barrier systems can also be used to keep vehicles from traversing steep sideslopes, which may result in an overturn collision. This strategy calls for agencies to review if current guardrail systems are compliant with current crash worthiness standards, and systematically replace outdated systems. Following, agencies should review all roadways to identify any locations in need of guardrail, especially at locations that exhibit greater potential for future serious crashes. Improve roadside design practices Run off road crashes at location with non traversable ditches and backslopes can result in fatalities due to roll overs or sudden forceful impacts. Additionally, placing or leaving fixed objects in the roadside can result in fatalities. Application of this initiative will include reviews of design policies, guidelines and procedures to identify any current deficiencies in practices. These reviews should compare practices to latest information available from research studies, to ensure changes can be expected to result in fewer crashes. Improve roadside furniture design and selection The design and maintenance of roadside furniture (guardrails, median barriers, drainage grates, signs, poles, etc.) directly impacts crash severity and resulting fatalities. This strategy relies on updates of standards, policies and guidelines to incorporate latest proven systems for future construction. This includes using current research findings to provide easy to use guidelines for improved roadside furniture selection, installation, and maintenance. Also needed is a process to review existing roadside furniture to identify deficient system and provide for timely replacement. Eliminate Work Zone Fatalities Scope of the Problem Less than 2 percent of the 2010 fatalities occurred in work zones. Most of these fatalities were vehicle occupants, but approximately 10 percent of those killed in work zones were pedestrians and bicyclists. Over 80 percent of work zone fatalities occur in construction work zones. Nearly 60 percent of work zone fatalities occur on roads with posted speed limits of 55 mph or greater. Fatal rear end crashes are 25 times more likely to occur in work zones as compared to the rest of the roadway network. Alcohol is involved in nearly 40 percent of work zone fatalities. Potential Strategies Driver education on safer driving practices in work zones Speeding, aggressive driving, and distracted or inattentive driving, can result in drivers that are either unaware of or unsure of work zone traffic control directions, and can lead to work zone fatalities. Coordinated and sustained public information and education campaigns dealing with these topics will support greater awareness of the need for safer driving practices through work zones. The focus should be increasing driver knowledge regarding the dangers of driving through work zones and their awareness when approaching and driving through work zone. Drivers may also benefit from information about what steps they can take to reduce work zone fatalities. Worker education on safety practices in work zones Work zone safety is as much a responsibility of the worker as it is for the driver. All construction workers should receive proper training for on site safety, especially how their actions can keep themselves and the driving public injury free. Training can help construction workers identify changes needed in the field that may not have been evident when maintenance of traffic plans were prepared. For urban/suburban arterial construction projects, training should address multi modal considerations, such as pedestrian and bicycle access, as well as driver safety. 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY 37

46 CHAPTER 4 TZD EMPHASIS AREAS Improve work zone design and operations Analytical safety analysis methods are often discussed for planning, design and operations stages of project development. Particular attention is needed in the area of work zone design and construction to provide a work zone that is easily understood, driver expectations are met, and that consistent uniform messages are used in work zones with the MUTCD. Advances in substantive safety analysis to estimate the impacts of maintenance of traffic plans would be particularly beneficial in supporting improvement in this area. Improve speed management in work zones Work zone speed management is an important element to reduce work zone collisions: the faster the speed of the traveling public, the higher the likelihood for severe crashes and the lower the chance that a driver will be able to respond in time to prevent crashes from occurring. Work zone design that considers speed management, including speed transitions and separation of construction workers form traffic, can support smoother traffic flow through the work zone and reduce the risk of fatalities in work zones. Automated speed enforcement in work zones (ASE) The use of photo enforcement in work zones is showing great potential in reducing operating speeds and speeding violations by through traffic, especially when combined with laws that double fines in work zones. The purpose of these installations is to change driver behavior, using the visible enforcement along with public education efforts. It is likely that automated enforcement could especially be effective in large or long term work zones, such as those present during freeway construction projects, where it can provide 24 hour compliance with work zone speed limits. It also has the benefit of not exposing officers to moving traffic during stops, which may be only feet away in work zones and could result in traffic congestion or secondary crashes. Law enforcement education Law enforcement can be particularly beneficial in encouraging improved driver behavior in work zones. Education is needed though to equip law enforcement officers with the necessary knowledge and skills to safely facilitate improved safety in work zones. Infrastructure-Related Emphasis Areas Scope of the Problem It is estimated that the highway environment (this includes weather for example) is a probable contributing factor in approximately one third of crashes. Enhance safety performance-based design Program and project development relies on published guidelines, criteria and standards (e.g., AASHTO Green Book, State Design Manuals, and MUTCD). Adherence to documents as means of achieving acceptable safety performance is referred to as nominal safety. Geometric and other published design policies are typically misunderstood by designers and policy makers as being primarily based on crash metrics, when in fact the criteria might be related to other factors, such as mobility. Investments in reconstructed or rehabilitated highways that are made in the name of safety (e.g., upgrade to standards ) can be costly. It is clear that the actual safety performance of highways, substantive safety crash frequency and severity can and does often differ. Highways that are nominally safe are frequently higher crash locations. The single most effective strategy, which involves implementation of the entire U.S. road system, would be to transform the application of design decision from solely standards based design to performance based design. In other words, decision to apply a design criteria or standard are based on their impacts in reducing crashes for the given project location. This strategy will take time to evolve and be embraced, but it offers not only clear performance benefits but also the potential to significantly decrease the costs and impacts associated with a pure standards based approach. Applying substantive safety methods, currently summarized in the HSM, during all stages of project 38 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY

47 CHAPTER 4 TZD EMPHASIS AREAS development and operations is an important consideration to building a safety culture throughout the organization. Substantive safety methods, also referred to as safety performancebased design, can be used early in project development to evaluate alternatives and later in the design and operations to quantify the expected outcome of design decisions. Two important elements to support implementation include maintaining road inventory information and providing training across agency offices and at local agencies. Potential Strategies Include science based safety methodologies in project development Being able to identify quantitatively the impacts of decisions reduces the potential for assumptive and anecdotal decisionmaking. Decisions move from pure opinion and advocacy to more reliable, consistent and effective decisions based on factual science based approaches. Therefore, tradeoffs can be more readily considered against other project needs. The integration of tools into every step of the process can facilitate the inclusion of substantive safety. The Crash Modification Clearinghouse, IHSDM and SafetyAnalyst are example tools available today with the ability to implement the HSM techniques. Commercial software is also available. Update existing design guidelines and tools Design standards, criteria and guidelines have been based on techniques and criteria that may have used methods that are less statistically reliable than what exists today. Protocols research and tools development could be provided to improve research approaches in this area. In recent research has Quantified the actual safety performance regarding many design elements; however, this information hasn t been integrated into all guidelines. A thorough review of design manuals is needed to identify possible changes or areas where designers need further clarification. Furthermore, substantive safety should also be considered in design exception and waiver requests to evaluate the impact of the proposed design. This allows the evaluation to objectively weigh the cost of meeting standards with the predicted crash outcome. Implement Intelligent Transportation Systems Intelligent Transportation Systems (ITS) use the integration of advanced communications technologies into transportation infrastructure and vehicles 19 to improve safety and mobility. With technological advances and changes in road user and vehicle technologies, these systems can be of particular value as we consider solutions to support a TZD vision. Two potential strategies are included, both focusing on connected vehicle technologies. Initial estimates indicate that these technologies may address as many as 82 percent of high risk crash opportunities for unimpaired drivers. The U.S. Department of Transportation: Research and Innovative Technology Administration (RITA) is researching connected vehicle technologies for safety. This section highlights some of the technologies that could reduce fatalities. Consider vehicle to vehicle communications as part of infrastructure planning, design and management Cell phone ownership is increasing, consumers are increasingly making use of positioning (GPS) navigation systems for travel, wireless coverage is improving and in vehicle wireless technologies allows for the consideration of connected vehicle technology to support the TZD vision. These systems are crash avoidance systems: warning drivers of situations where the risk of a crash increases. Some examples of these systems include: Emergency Brake Light Warning Forward Collision Warning Intersection Movement Assist Blind Spot and Lane Change Warning Do not pass Warning Control Loss Warning Head on collision avoidance Intersection collision avoidance Pedestrian crash warning ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY 39

48 CHAPTER 4 TZD EMPHASIS AREAS Vehicle-Related Emphasis Areas Vehicle safety has improved significantly over the last 50 years. The automotive industry is continually improving vehicles both in the areas of active and passive safety. The joint efforts of the federal government and private industry have made possible what many regard impossible 50 years ago. In recent years, some experts anticipated that the benefit from improvements in vehicles would diminish, but it has become clear that the industry is willing to continue to be an active force in lowering fatalities and potential of recent innovations are anticipated to be substantial. The average age of vehicles is increasing. The vehicle fleet in late 2009 had an average age of 10.6 years for passenger vehicles, 9.6 for light trucks and 10.2 for all light vehicles. This trend is not expected to change any time soon: the current economic crisis is deterring consumers from purchasing new vehicles. From 2002 through 2008, the average length of vehicle ownership increased 24 percent, from 37.2 months to 46.3 months. Vehicle turnover will be critical to the rapid deployment of new technologies in vehicles. Consider vehicle to infrastructure communications as part of infrastructure planning, design and management Vehicle to infrastructure communication technologies include dynamic horizontal curve warning systems, intersection collision avoidance systems, lane departure warning systems (see Eliminate Lane Departure Fatalities), active traffic management systems (ATS) and variable speed limit systems. ATS for example focus on harmonizing vehicle speeds, reducing the relative differences in speeds of individual vehicles this reduces crash risk. These same systems can also identify potential incidents, decreasing detection times and, as a result, improving response times. The context (facility type and land use), history of particular fatality types (crash types), the project type (e.g. new construction or maintenance) are several of many considerations in selecting the most appropriate vehicle to infrastructure technologies to support the TZD vision. These technologies rely on particular infrastructure features, requiring consideration during planning, design and system management. POTENTIAL RESOURCE USDOT: RITA hosts a Knowledge Resource Database that provides updated information on applications, benefits, costs, lessons learned, and deployment statistics. Implement Advanced Vehicle Technologies The area of advance vehicle technology is rapidly growing and innovative strategies continue to enter consideration for deployment. These technologies include crash avoidance technology (Refer to Emphasis Area: Implement Intelligent Transportation Systems). An area that is emerging within advanced vehicle technology is technologies that can assist drivers in the driving task, and, besides providing just warning, for example actively engage brakes when it is required to avoid a crash or identify when a driver is dosing off behind the wheel. The progress we make over the next 25 years will depend on this area as well. Improve Vehicle Crashworthiness Vehicle crash worthiness has improved substantially over the last 50 years. These advances include changes to windshields, rollover technologies, airbags (frontal and side) to crumble zones. Advancement in this area is strongly encouraged. The crashworthiness of vehicles can significantly increase the survival rate of occupants if they are properly restrained. Improve structural strength of vehicles in rightangle crashes and overturning crashes the relative risk of death and serious injury is high in right angle and overturning crashes. Advances in this area is strongly encouraged because of its potential in fatality reduction. Improve airbag systems in vehicles Airbag technologies have been instrumental in saving the lives of many. Experts agree that there are opportunities to advance this field further, building on the success of the past and improving effectiveness for occupants of different sizes and different collision mechanisms ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY

49 CHAPTER 4 TZD EMPHASIS AREAS Eliminate Fatalities involving Commercial Vehicles Scope of the Problem The number of fatalities involving large trucks increased 6 percent in 2010 to 529 compared to the previous year. While the relative portion of fatalities in this area remains small compared to other user groups, the associated severity of these crashes can be high. This is particularly true for passenger vehicles struck by large trucks. Commercial vehicles represent a fleet with high relative exposure to traffic per vehicle than that of other vehicle types. The ability to maintain the reductions in the past and reduce fatalities in this vehicle group will require consideration of implementation of strategies listed below. Potential Strategies The following list represents strategies that will be of value in a TZD vision. Commercial driver programs Commercial vehicle inspections and enforcement Vehicle technologies for commercial vehicle drivers and commercial vehicles Exclusive truck lanes Consideration of commercial vehicle safety in the planning, design and operation of the transportation system Driver monitoring systems Public education campaigns and enforcement of safe driving practices in proximity of commercial vehicles. Eliminate Fatalities involving Ambulances Scope of the Problem Historical ambulance manufacturing standards in the United States are based on purchasing specifications of years past and on traditional designs. The science of safety, safety feature adoption and vehicle design has not progressed as quickly with ambulances as it has with passenger vehicles (Levick, 2007). Opportunities exist within emergency medical services to improve vehicle design in the areas of crashworthiness, occupant restraint systems, head strike zones, vehicle handling, secure equipment storage and other areas. There are design standards that exist in other countries that may serve as examples to the United States. Safe ambulance design is a workplace safety issue. Without providing safe ambulances to work in, the EMS workforce is at risk. Studies have reported that EMS workers who become involved in a motor vehicle crash are two times more likely to suffer a fatal injury than occupants of a non ambulance crash (Maguire et al, 2002). A culture of safety for the EMS worker has not been standardized within the ambulance manufacturing industry and as a result the EMS workforce is at risk. In the United States, the reporting of crashes that involve ambulances is inconsistent and minimal. The absence of ambulance crash data is a challenge for the ambulance builder industry. Ambulance crashes that are catastrophic are high profile events that impact the communities they are intended to serve. Without good crash data, little scientific guidance is available to the purchasing agency when selecting an ambulance. Potential Strategies Photo Courtesy: Dia Gainor, NASEMSO Safety Engineering and design standards for ambulance, including removing FMVSS crashworthiness exemptions Ambulances are not fully covered by the Federal Motor Vehicle Safety Standards (Levick, 2008). As a result, ambulance manufactures are not required to adopt, adhere to, or include many of the safety standards that exist in commercial or passenger vehicles. The patient care 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY 41

50 CHAPTER 4 TZD EMPHASIS AREAS compartment is often designed by the product builder with custom modifications requested by the purchasing entity. Safety elements are somewhat limited by current manufacturing templates and as a result are inconsistently included in ambulance production. Traffic signal pre emption signal pre emption systems allow for signals to provide priority to flow in the path of an emergency vehicle. Besides reducing the amount of delay, these systems also support improved driver expectation, resulting in an improved driving environment where crash risk is managed while en route to the scene of a crash. Develop and Adopt Policies regarding the use of ambulance lights, sirens and appropriate speed selection the use of ambulance lights and sirens are not always required. While the timely arrival of EMS personnel can impact crash victim survivability, not arriving at all at a scene because of being involved in a crash themselves, will significantly impact their ability to impact injury severity. It is critical to the success of TZD that policies be developed and adopted that deal with this area. Eliminate Fatalities Related to the Upkeep and Maintenance of the Existing Vehicle Fleet Scope of the Problem The quality and accuracy of reporting of the contribution of the lack of maintenance and upkeep of vehicles makes it difficult to quantify the impact of this emphasis area. Consideration of the ability of a driver to respond in a timely and appropriate manner when brakes fail, headlamps do not work, etc. it becomes apparent that it is necessary to include this emphasis area as part of the TZD vision. Potential Strategies The following presents a list of potential strategies that will support the elimination of fatalities related to upkeep and maintenance the vehicle fleet: Timely identification and enforcement of vehicle safety recalls Vehicle inspections Enforcement of legislation related to headlamps, windshields, tire thread, etc. Emergency Medical Services EMS influences the post crash survivability of crash victims, first responders and vehicles sharing the roadway with ambulances and vehicles transporting crash victims. EMS has evolved as a population based service. The EMS systems in the United States are concentrated among the population centers and corridors. Rural areas of the United States remain underserved and are where focus and attention is required as evidenced by the higher fatality rate per miles traveled in rural areas 20. The emphasis areas in this section address components of EMS that will require particular action to make a TZD vision a reality. EMS has a significant role to play in not only fatality reduction but also recovery of seriously injured crash victims. Improve Access and Capabilities Scope of the Problem Access and capabilities vary across the country. In rural and remote areas, where EMS is often needed most (higher fatality numbers) the lack of access limits the ability of EMS to save the lives of crash victims. Potential Strategies Potential strategies to improve access and capabilities include: Phase II compliant enhanced centers planning Participation in "Next Generation 9 1 1" planning and implementation Interoperability between centers and traffic management centers. Improve Incident Detection Incident detection directly impacts response times of EMS and, as described in the emphasis area focusing on response time, would directly impact survivability of crash victims. 20 Zwerling et al. (2005) ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY

51 CHAPTER 4 TZD EMPHASIS AREAS Potential Strategies Potential strategies to improve incident detection includes: Universal telematics definitions and transmission (e.g.,.xml) standards Pairing advanced automated collision notification data with the algorithm to predict probability of severe injury Develop advanced automatic collision notification (AACN) based predictors for the need for vehicle extrication Improve EMS system response and capacity Scope of the Problem In an assessment of 2005 fatal crash statistics, fatalities in terms of response time distribution were: 35 percent fatalities with a response time of 0 9 minutes; 34 percent fatalities with a response time of minutes, and 31 percent for cases where response times exceeded 90 percent. In cases where response times are longer, improved triage and mode of transportation choices impact the number of fatalities associated with the particular crash. Potential Strategies Potential strategies to improve EMS system response and capacity include: Implement on board driver measurement and feedback systems in all ambulances Connected emergency response vehicles Evidence based emergency vehicle operations standards Telemedicine applications for EMS Improving emergency medical response to roadways in rural areas, especially for mass casualty incidents Implement the National EMS Education Agenda for the Future as published by NHTSA Establish national vehicle extrication education and competency standards for emergency response personnel Regionalization of emergency care Improve On Scene Medical Care Scope of the Problem The ability of EMS personnel to provide the medical care necessary impact survival post crash. These professionals need to make a number of decisions that represents field triage: identify the type and severity of injury; and identify which facility would be the most appropriate given the nature and characteristics of the crash victim. Potential Strategies Implementation of the "Field Triage Scheme: The National Trauma Triage Protocol" as published by the CDC an updated guideline reflecting recent evidence and experimental base to support improved field triage. Inclusion of EMS agencies in traffic incident management planning and training Inclusion of EMS professionals and the consideration of EMS needs are essential in the development and deployment of traffic incident management. This includes active participation of EMS agencies in the planning and training of these plans. Real time route access awareness for emergency medical response agencies The ability of EMS to reach a scene in a timely and safe manner depends on the information an ambulance driver has available to improve real time route access awareness. Advances in this area and use of current technologies will be of particular benefit. Designated landing zones for air medical helicopters in high crash frequency/severity areas In some cases, crash victims will require air transport. The ability of this mode to provide a timely service and the relative risk to the travelling public in providing landing zones directly impacts the ability of crash victims to reap the benefits of this mode. This strategy can also impact the relative safety of EMS and first responder safety on the scene. POTENTIAL RESOURCE CDC, Injury Response: Field Triage Guidelines for the Field Triage of Injured Patients: 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY 43

52 CHAPTER 4 TZD EMPHASIS AREAS Improve the Safety of Crash Victim Patients This emphasis area deals with vehicular and air transport of crash victims. Potential Strategies Safety engineering and design standards for ambulance, including removing FMVSS crashworthiness exemptions Refer to the Eliminate Fatalities involving Ambulances emphasis area for a discussion strategies dealing with this topic. Air medical helicopter utilization criteria Helicopter emergency medical services can provide rapid transport to trauma care facilities. Identifying when such transportation is necessary because it is a valuable but limited resource. Ambulance access to intelligent transportation systems infrastructure with the deployment of intelligent transportation systems (covered in the emphasis area Implement Intelligent Transportation Systems) consideration of the needs of EMS are critical so that personnel and crash victims can benefit from the system. Improve Hospital and Specialty Care Infrastructure Scope of the Problem When a crash victim can receive treatment at a Level 1 trauma center, their relative risk of death reduced by 25 percent compared to those treated in a non trauma center. While one may conclude that transporting all crash victims to a trauma center would reduce overall fatalities, it is unfortunately not the case. Such an approach will overburden the limited amount of trauma centers and reduce their ability to treat patients that need the trauma care most. Potential Strategies Potential Strategies in this emphasis area include: Trauma system implementation Inter facility telemedicine applications for crash victim care Conclusion and Summary A TZD vision requires us to consider all fatalities as we look for strategies to address those crashes resulting in fatalities. As part of any plan, we are required to prioritize. In this Framework, we acknowledge that not all the possible emphasis areas are included: what is included is deliberate, identifying those collision types, users and other areas that collectively represent a large portion of the fatalities on our highway network. We would, however be remiss if we do not mention that consideration of crash types such as rail roadway crossing crashes and crashes involving unconventional vehicles also contribute to the total number of fatalities. As part of ongoing efforts, keeping those areas in mind would support driving down fatalities towards zero. The strategies in this chapter are prioritized based on known impacts on the number of fatalities that can be addressed by each. Some, for which the direct link is not yet quantified but scientists conclude that these strategies indeed impact the number of fatalities, expert judgment was applied. The range of emphasis areas and strategies will change over time and most certainly over the next 25 years. Part of TZD implementation, discussed in Chapter 6, will be to do more evaluation and research to expand our knowledge base; to reduce the barriers that are currently keeping us from implementing those strategies that are often the most effective but lack the necessary support; 44 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY

53 CHAPTER 4 TZD EMPHASIS AREAS identify where changes in conditions reduce effectiveness of strategies we relied on in the past. This framework will therefore need to be updated to revisit what is presented here to support inclusion and adjustment of content to reflect what is known to be effective in fatality reduction. 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY 45

54 Chapter 5 Supporting Components of TZD Introduction Achieving success in reducing fatalities requires a well thought out approach that achieves the goals and strategies of an organization that are consistent with the organization s ability to effect change on the road system. This means that safety performance and its impacts on society are understood, that resources are in place to fund, train, develop, and implement the necessary changes. This chapter discusses the following key supporting components and strategies for implementation that will lead to achieving the TZD vision: safety management, data and analysis, workforce development and training, public health, and communications. Emphasis Area: Safety Management Safety management supports the implementation of strategies that reduce the potential for fatal crashes on the roadway system. The safety management process starts with an assessment of the system s safety performance using crash and other safety data. The information is then used to identify emphasis areas and combinations of strategies. By better understanding the system and the factors contributing to crashes, an organization can set priorities, select appropriate strategies, and develop plans of action. Action plans allow the organization to more effectively and efficiently address the emphasis areas within its area of responsibility. The following section describes the use of safety plans to support TZD implementation and highlights the value of safety plans. Safety plans support implementation of a fundamental strategy for bringing diverse approaches together to effectively target fatalities and provide resources to achieve a TZD vision. Potential Strategy for Safety Management Develop and Implement Safety Plans The development and implementation of state strategic highway safety plans (SHSPs) and safety plans at the regional and local level allow for comprehensive, focused strategies for reducing fatalities. The plans present the goals, objectives, and emphasis areas for implementation through safety programs and activities in the region and inform the decision makers and the public. Informed stakeholders are more likely to provide resources, accept strategies and countermeasures, and ideally, support change in safety culture. Safety plans with the following characteristics have been particularly successful in fatality reduction (list not intended to be all inclusive): The emphasis areas and strategies reflect a multidisciplinary approach; for example, the plans include approaches to fatality reduction through education, enforcement, engineering (roadway and vehicle related), and emergency medical services. The needs, goals, objectives, and emphasis areas in the plans reflect data driven approaches and incorporate stakeholder input. The plans reflect coordinated and collaborative implementation. The plans support implementation across agencies and stakeholders in support of a common goal to reduce fatalities. The plans set safety performance measures to evaluate success measured in fatality reduction. The strategies in the plans represent those proven to reduce fatalities. The plans include strategies or specific actions in support of improving data and analysis, workforce development and training, public health, and communication. The Minnesota County Safety Plans are examples of safety plans at the local level. The plans focus on low cost systematic safety projects based on the probable contributing factors to fatal and serious injury crashes on the public highway system. 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY 46

55 CHAPTER 5 SUPPORTING COMPONENTS OF TZD Data and Analysis The Importance of Data, Data Management, and Analysis Tools Data, data management, and analysis tools should be considered and made an integral part of the implementation of a TZD vision. Success in reducing fatalities is more likely where data inform safety decision and actions. To be effective, it is required that data analysis supports the following: identification of needs, the selection of emphasis areas and priorities, the development of strategies, the assessment of safety performance within and across the emphasis areas, and the need for change to increase performance. The data types and management systems needed for achieving TZD vary across the disciplines and emphasis areas. Examples of data that support TZD include crash data, injury surveillance data, roadway inventory data, vehicle title and registration data, driver s license and conviction data, and law enforcement related data. With the implementation of a TZD vision, it is necessary to consider data collection, data management, data quality, and linkage specifically as they relate to the activities and goals of the disciplines involved. Collaboration and linkage of data across discipline areas and across agencies are of particular value. For example, the activities can guide the successful identification of targeted solutions and the assessment of the performance of selected strategies, projects, and programs on fatality reduction. It is important to note that data sources necessary to support a TZD vision may be of value to other business units within and across agencies. For example, common safety related data elements such as crash, injury, roadway, and exposure can support long range transportation planning, design and operation of facilities, transit stop placement, congestion management, incident management, asset management, healthy community programs, recreational programs for pedestrians and bicyclists, spinal cord injury tracking, traumatic brain injury surveillance, vehicle fleet management, etc. In turn, analyses for TZD rely on data from other business units and agencies. The Need for Systemwide Data Achieving a TZD vision requires fatality reduction across the public roadway network and cannot just focus on the highest volume roads. Both urban and rural systems must be addressed, regardless of jurisdiction. Fatalities on the local roadway system can represent a significant portion of the fatalities in a region or state. It is therefore necessary to support the collection, management, and analysis of data for the entire public roadway system as a key component of TZD implementation. The institutionalization of data collection and analysis of the local system within the next 25 years will be essential to success in TZD. Where tribal nations express the desire to collaborate and join in a TZD vision, their information sources will increase the likelihood of success in achieving a TZD vision. Emphasis Areas for Data and Analysis The following are the two emphasis areas for data, data management, and analysis tools: Advancement of data collection, data management systems, and linkage Advancement of data analysis practices. Emphasis Area: Advancement of Data Collection, Data Management Systems, and Linkage State and regional agencies collect various data elements often related to particular programs and projects to support day to day agency business. Developing approaches that improve data usage, quality, and management will help support data as a critical asset to an organization s functioning. Potential Strategies for Advancing Data Collection, Data Management Systems, and Linkage The framework presents the following eight potential strategies in the area to advance data collection, data management systems, and linkage: 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY 47

56 CHAPTER 5 SUPPORTING COMPONENTS OF TZD Improve crash data collection. Improve the accuracy and completeness of crash location information. Establish and maintain data clearinghouses. Broaden data collection practices to capture different system users (pedestrians, bicyclists, motorcyclists, older drivers, teen drivers, etc.). Implement the National Emergency Medical Services Information System (NEMSIS) at state and local levels. Maintain and link data systems from different stakeholders. For example, infrastructure (roadway, roadside, operations, maintenance, etc.), medical (hospital discharge data, trauma registry, NEMSIS, death certificate data, child fatality review data, etc.), law enforcement (citation, etc.), driver (driver s license database, etc.), and vehicle (vehicle registration databases, etc.) within states and where appropriate across state boundaries. Adopt and implement for nationwide use data dictionaries and standards, including Model Minimum Uniform Crash Criteria, Model Inventory of Roadway Elements, and NEMSIS. Collect and analyze real time ITS data to support fatality reduction. The state traffic records assessments (through National Highway Traffic Safety Administration) and the state data capabilities assessments (through the Federal Highway Administration Roadway Safety Data Partnership) can inform the needs assessment specifically as it relates to data collection, management systems, and improved data linkage. The establishment of state level traffic records coordinating committees (TRCCs) has supported and, in some cases, spurred collaboration in states where forums for collaboration in highway safety did not exist previously. SAFETEA LU dedicated Section 408 funding to support data improvements. The projects have created opportunities for establishing and improving state data systems. In some cases, the TRCC provided a mechanism to support multidisciplinary approaches to data collection, management, and linkage. In others, the TRCC facilitated an improved understanding of the importance of data, availability and quality of data, and the needs in the state. Emphasis Area: Advance Data Analysis Practices Analysis tools can strengthen the value of data by creating standard approaches to analysis, increasing consistency, standardizing reports for activity related decisions and performance measurement, and often reducing the time and resources necessary to complete the analysis. Analysis methods should represent the most appropriate methodological approach to data analysis. Where appropriate and practicable, the use of methods that provide statistically defensible and reliable results will further improve the reliability of results and, subsequently, decision making and investment choices. It may be necessary to update existing analysis tools and to develop new tools within or across disciplines to support achieving a TZD vision. Such tools assist in the needs assessment, emphasis area selection, implementation of appropriate strategies, and assessment of the effectiveness of implemented strategies. It may also be necessary to develop interim tools that use lesser amounts of data to assess system performance when data do not exist or cannot be collected in the shorter term. Potential Strategies for Advancing Data Analysis Practices The framework presents the following four potential strategies to advance data analysis practices: Develop data analysis methods and tools for use at the state, regional, and local levels across different stakeholders, including cost benefit analysis for behavioral programs. Implement analysis tools, including the Highway Safety Manual, the Interactive Highway Safety Design Model, road safety assessment programs, and maps. Improve the injury severity reporting of persons involved in motor vehicle crashes. Advance the science of crash data analysis and modeling (including crash prediction models, severity distribution prediction, and risk based modeling) ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY

57 CHAPTER 5 SUPPORTING COMPONENTS OF TZD Workforce Development and Training The workforce significantly affects the ability of an agency or organization to support fatality reduction. Aspects of particular importance include their knowledge, skills, and ability to keep up to date with safety advances that can support fatality reduction. A workforce lean in terms of availability and resource knowledge capabilities provides fewer opportunities and time for mentoring and crosstraining in a particular specialization area. These and other challenges emphasize the need to include workforce development and training in TZD implementation. Workforce knowledge and skills can directly influence the success of TZD implementation. For example, emergency medical service (EMS) personnel could directly influence the likelihood of crash victims survival by applying such skills as the ability to safely remove a motorcycle helmet. Emphasis Area: Advance Workforce Development and Training within Highway Safety and Related Professions There is one emphasis area in workforce development: advancing workforce development and training within highway safety and related professions. Following are potential strategies to doing so: Identify and support peer exchange activities to support knowledge transfer of best practices and lessons learned (SHPSs, profession specific topics, etc.). Develop and promote core competencies for specific positions within organizations. Develop university level highway safety curriculum. Designate highway safety professionals in transportation agencies at all levels of government. Plan for succession of staff with highway safety knowledge. Promote the highway safety profession to attract staff. Identify and support peer exchange activities to support knowledge transfer of best practices and lessons learned Peer exchanges and conferences allow safety professionals to accelerate the implementation of successful approaches. These events allow for the exchange of ideas that may lead to identifying and using new approaches and implementing those new approaches by combining lessons learned from multiple functional concepts or areas of expertise. The events may include SHPSs and other profession specific topics. Develop and promote core competencies for specific positions within organizations The science of safety and the demands on personnel working in the areas of highway safety and related fields are increasing; specialization is becoming more commonplace. Advancing the TZD vision requires skills and knowledge that are not commonly present in related disciplines or program areas. POTENTIAL RESOURCE The Highway Safety Training Synthesis/Roadmap, a product of the National Cooperative Highway Research Program 20 07/Task 290, presents a roadmap for workforce training. The resource presents knowledge tables with concepts, processes, tools, context, and potential sources of training materials for a variety of organizational roles and responsibilities. Organizations particularly will benefit from the implementation of multidisciplinary approaches to reducing fatalities associated with an emphasis area. As program implementation becomes more multidisciplinary, the workforce will need to broaden its knowledge and skill sets. For instance, engineers at a transportation agency will improve the effectiveness of countermeasure selection to reduce fatalities by improving their understanding of the role and contribution of enforcement, education, and EMS personnel and their particular needs in guiding fatality reduction. Develop university level highway safety curriculum Existing university curricula do not specifically provide for imparting the particular knowledge and building the skills needed for safety professionals across different domains (civil 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY 49

58 CHAPTER 5 SUPPORTING COMPONENTS OF TZD engineering, behavioral psychology, injury prevention, sociology, mechanical engineering, statistics, etc.). The development and implementation of university level highway safety curricula would equip professionals with the fundamentals and basic skills to accelerate the advancement of approaches that support more effective fatality reduction. Such academic programs could also promote the highway safety profession as an independent area of study leading to advanced degrees. In some areas, such as transportation engineering, the greatest likely benefit to fatality reductions would be the integration of safety considerations into everyday activities. For example, explicit consideration of safety as part of the programming and project development process within a transportation agency, much like current considerations for environmental impacts, would emphasize the need to incorporate core concepts of highway safety into the undergraduate civil engineering curriculum. Designate highway safety professionals in transportation agencies at all levels of government Highway safety professionals at transportation agencies focus on safety specific projects, activities, and programs. These professionals also serve as a resource in multidisciplinary reviews of projects, activities, and programs that do not have a specific safety focus. In cases where limited budgets do not allow for full time and agency specific highway safety professionals, the sharing of human resources across agencies may offer opportunities to increase access to safety professionals. Plan for succession of staff with highway safety knowledge The increase in workforce turnover rates, the need for specialization, and a lean workforce require considering succession planning. In some states, as many as 35 percent of the workforce will be eligible for retirement over the next few years. 21 The use of knowledge management techniques can support this strategy. Promote the highway safety profession to attract staff The implementation of a TZD vision necessitates particular attention to a skilled and knowledgeable workforce. The greater demand for these professionals, retirement of existing staff, and transfer of experienced staff to other offices, functional areas, or fields requires consideration of activities that will generate the entry of an increasing number of motivated and knowledgeable professionals into highway safety and related fields. This strategy can also support increased awareness of the value that highway safety professionals can offer within and across the different domains. Public Health The public health profession has played a key role in reducing fatalities through injury surveillance and injury prevention. Injury surveillance focuses on understanding the scale and nature of injuries and deaths in motor vehicle crashes. Injury prevention activities include the review and implementation of successful strategies to reduce the risk of these injuries and deaths. The perspective of the public health community on motor vehicle fatalities is part of a larger set of overarching goals: creating and supporting a society in which all people live long and healthy lives (Healthy People 2020). There are two emphasis areas for the area of public health: Advance and extend the use of injury surveillance programs to support the monitoring and evaluation of TZD goals, plans, and related programs. Integrate public health as a key stakeholder in highway safety. 21 Theresa Adams, TRB Session 189, WisDOT study ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY

59 CHAPTER 5 SUPPORTING COMPONENTS OF TZD Emphasis Area: Advance and Extend the Use of Injury Surveillance Programs to Support the Monitoring and Evaluation of TZD Goals, Plans, and Related Programs Following are potential strategies to advance and extend the use of injury surveillance programs to support the monitoring and evaluation of TZD goals, plans, and related programs: Implement and integrate injury surveillance practices into the evaluation and monitoring of safety plans at the national, state, and local levels. Assess and track motor vehicle crash related traumatic brain injury (TBI). Existing injury surveillance programs can offer insights into alternative approaches to monitoring progress towards TZD. The Centers for Disease Control are funding TBI surveillance programs in several states. The programs offer particular value in assessing the nature and incidence of TBI, particularly as it relates to TBI related injuries of motorcyclists. Emphasis Area: Integration of Public Health as a Key Stakeholder in Highway Safety Over the last decade, public health professionals actively contributed to success in efforts to reduce fatalities. Most attribute their success to their ability to research and quantify injuries and fatalities deemed preventable, identify and monitor preventative measures, communicate the impacts and potential benefits to the public and legislature, change public perception, and generate support for changes in legislation. Potential strategies to integrate public health professionals as key stakeholders in highway safety are the following: Include the public health community in the development of state, regional, and local safety plans. Promote policy changes based on public health. Include the public health community in the development of state, regional, and local safety plans The public health community shares the common goal of fatality reduction, supports some of the same strategies, provides unique linkage to the local community, and offers additional insight to contributing factors to crashes. For example, strategies for drinking and driving crashes often focus on law enforcement related strategies. Within healthy communities, drinking and driving incidents may point to substance abuse. As a result, the public health community may consider implementing strategies to treat and reduce substance abuse thereby supporting reductions in the number of drivers drinking and driving. Including this community would greatly benefit TZD. The contribution of the public health community to the development of safety plans can, for example, include providing a community perspective on fatalities, contributing insights from existing injury surveillance activities in the nature and magnitude of fatalities and injuries, and strengthening evaluation processes necessary to monitor progress during implementation. Promote policy changes The programs and activities in public health support several emphasis areas mentioned in Chapter 4 of the framework. The public health community has demonstrated its ability to influence public policy in, for example, occupant protection, impaired driving, at risk groups in the population (child passengers, teen drivers, older drivers), and particular injury types (spinal cord injuries and TBIs). The reputation of the public health community and its unique perspective in terms of promoting a healthy society make these professionals ideally suited to promote policy changes. 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY 51

60 CHAPTER 5 SUPPORTING COMPONENTS OF TZD Communication Communication is a critical component of highway safety since it provides a means to allow for exchange of information and knowledge across organizations, the public, and decision makers. Numerous forms of communication exist and are used to reach the intended audiences. These forms include written, visual, and audio formats. Communication of information and knowledge is increased when the form and method of delivery are developed to achieve a specific purpose or goal. Communication with the public is critical to the success of the TZD vision, since targeted audiences will need to understand the vision, goals, and objective if they are to assist in changing the safety culture in the United States. Good communication also increases trust when organizations share information in openly and transparently. Progress toward the TZD vision can be shared, changes and needs can be discussed, and improved decisionmaking can occur when excellent communication and marketing campaigns are developed. Communication also plays a key role in safety culture change (refer to Chapter 3 for more information). Two emphasis areas are included as part of communication: Improving public understanding of highway safety Promoting the adoption, support, and implementation of the TZD national strategy. Emphasis Area: Improving Public Understanding of Highway Safety The public has limited understanding of the true impact of traffic fatalities on society. This lack of understanding limits the ability of the safety community to generate the cultural and societal changes and to achieve the motivation necessary to accomplish the changes required by the TZD vision. If understanding isn t sufficient, then the financial resources, laws, and actions necessary to address the public health problem will not be in place. Thus, the ability to reduce fatalities is impacted. Improving the understanding of the real cost in terms of lost productivity, cost in lost lives, families effected by tragedy, and the resources used to deal with the underlying problems, when proven method that can address these negatives currently exist will be critical. Also of importance will be the need to personalize traffic safety in a manner that brings focus to how the public perceives and reacts to safety. Emphasis will need to be given on the importance of proactive strategies that reduce the potential for crashes, rather than on weighting for fatalities occur before action is taken. Potential Strategy Public education campaigns The use of educational campaigns has been instrumental in informing the public to traffic safety and fatality reduction. These tools have helped shaped the public s opinion in very important areas, such as driving under the influence, drowsy driving and texting. Public information campaigns, when combined with enforcement, can achieve higher levels of fatality reduction than public education campaigns alone. When using public information campaigns it is important to identify and craft messages that not only inform, but drive cultural change as well. Emphasis Area: Promote the Adoption, Support, and Implementation of the TZD National Strategy Communication of our current successes is important. However, additional steps to promote the TZD vision with the public and organizations will be needed. These efforts should show the benefits of the individual programs and how changes in the respective areas can create positive personal benefits. Information about how participants can assist and do their respective parts will be necessary to sustain and increase fatality reductions. For those new to the process it will be important to communicate that each organization, however small, plays an important part. Common approaches and the sharing of information across boundaries will be important so that unnecessary resources are not expended, that good approaches can become great approaches, 52 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY

61 CHAPTER 5 SUPPORTING COMPONENTS OF TZD and that experts are working together in the most effective and efficient manner. Blogs, newsletters, media campaigns, and peer exchanges are a few of the proven means to exchanging that information. Potential Strategy Develop and implement communication plan at the national, state and local level <INFORMATION FROM THE NCHRP MARKETING TEAM IS FORTHCOMING> 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY 53

62 CHAPTER 5 SUPPORTING COMPONENTS OF TZD 54 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY

63 Chapter 6 Introduction The Framework provides a foundation for moving our nation Toward Zero Deaths. It emphasizes changing roadway safety culture so that risky driving behaviors are unacceptable. It calls for using all safety resources cost effectively to yield maximum benefits. It calls for making data driven decisions, using emerging safety methodologies, and taking proven countermeasures. It stresses multidisciplinary integrated efforts. It focuses on starting with what we now know and learning more as the program unfolds so that future efforts are based on enhanced strategies and policies. The magnitude of the TZD effort is large, but so are the potential benefits. Experts agree that it offers the best roadway safety future for our nation. Getting everyone on board and initiating the framework will be a big task, but the implementation plan outlined in this chapter will guide that effort. The implementation plan has some similarities to the Strategic Highway Safety Plan (SHSP), which has been beneficial in bringing roadway safety partners together and reducing fatalities and serious injuries. But the Framework will go far beyond that, as explained in the following paragraphs. The National TZD Steering Committee, or a variation of it, will provide core leadership and national visibility. The Committee will coordinate efforts, maintain momentum, identify opportunities and challenges, and manage the overall effort. EXHIBIT 17: Implementation Road Map for Toward Zero Deaths As the program matures, coordination and management efforts will grow larger. At some point it may be necessary for the Steering Committee to become a larger unit, or for portions of the Framework to be absorbed by other entities. Following are core components of TZD implementation: The Framework vision and needs are longerterm, larger, and different from their SHSP counterparts. The Framework will be reviewed and updated every 5 years to maintain effectiveness. Agencies at all levels will learn to evaluate their safety efforts by researching and assessing projects and programs (roadway safety total quality management, or TQM). Later stages of the road map will depend upon more advanced technologies and management efforts as the implementation progresses. Implementation Stages TZD implementation will be a broad, complex effort that grows in acceptance and success over the implementation period. It will begin at the level of current safety programs (SHSPs) and build upon them. It will reach the TZD goal by starting from current safety knowledge and methodologies and building on them through research and experience. This can be accomplished through a three step approach (Exhibit 17): Stage 1. Maintain existing progress and build momentum. Stage 2. Set the stage and invest for long term success. Stage 3. Accelerate toward zero deaths. STAGE 1 Set the stage & invest for long term success (5 years) STAGE 2 Maintain & build on the momentum achieved with the strategic highway safety plans (5 years) STAGE 3: Accelerate Toward Zero Deaths - reap the fruits of effort over the first 10 years (15 years) 2 ND DRAFT FRAMEWORK FOR THE NATIONAL STRATEGY ON HIGHWAY SAFETY 55