SAFETY
DOT Performance Goal: Reduction in transportation-related deaths and injuries.
Transportation safety is the Department’s highest priority. The 2006 fatality rate of 1.41 per 100 million vehicle miles of travel (VMT) equates to 42,642 lives lost from motor vehicle crashes. This is unacceptable, and even one fatality is one too many. While firmly committed to meeting the 1.0 fatality rate goal, the Department realizes it will not reach this goal by 2008 as originally planned.
The 2008 1.0 fatality goal, which was originally set in 1998, would reduce the number of transportation deaths to approximately 33,500 by 2008. The number was changed to an equivalent rate in 2002. The original goal was based on overly optimistic behavioral assumptions—a 90 percent seat belt usage rate and alcohol-related fatalities falling to 11,000 annually. Current figures indicate that the national seat belt use rate is 81 percent, and there are over 17,000 alcohol-related highway fatalities annually. Additionally, an unprecedented, unpredictable, and sustained spike in motorcycle rider fatalities began when the original goals were set—from a historic low of 2,116 in 1997 to 4,810 in 2006 (a 127 percent increase).
The funding requests for the National Highway Traffic Safety Administration (NHTSA), the Federal Highway Administration (FHWA), and the Federal Motor Carrier Safety Administration (FMCSA) contribute to the DOT Safety strategic objective and its new target, as stated in the DOT 2006-2011 Strategic Plan, which is to reduce highway fatalities to 1.0 per 100 million vehicle-miles of travel (VMT) by 2011. The DOT overall fatality rate target for 2009 is 1.34 fatalities per 100 million VMT.
In the FY 2008 budget, the Department included four fatality sub-measures— passenger vehicle occupants, motorcycle riders, large trucks and buses, and non-occupants (pedestrians, bicyclists, etc.)—which represent the breadth of all highway users. The purpose of this approach is to closely look at the fatality rates of the different segments of highway users, devote greater energy and resources, and develop new strategies to combat sub-measure trends that are impeding progress to the overall 1.0 goal. NHTSA, FHWA, and FMCSA programs directly support these sub-metrics. Included later in this chapter is a discussion of FHWA-specific initiatives towards each measure. The FHWA will continue to maintain agency-specific intermediate outcome measures, many of which serve as a subset to the Department’s accountability measures.
DOT Accountability Measures in Support of 1.0 Fatality Rate
| 2003 | 2004 | 2005 | 2006 | 2007 | 2008 | 2009 | |
|---|---|---|---|---|---|---|---|
| Target | N/A | N/A | 1.15 | 1.12 | 1.10 | 1.06 | 1.02 |
Actual |
1.21 | 1.17 | 1.15 | 1.10 | + | ||
| 2003 | 2004 | 2005 | 2006 | 2007 | 2008 | 2009 | |
|---|---|---|---|---|---|---|---|
| Target | N/A | N/A | N/A | 75 | 76 | 76 | 77 |
| Actual | 69.16 | 69.83 | 73.48 | 71.94 | + | ||
| 2005 | 2006 | 2007 | 2008 | 2009 | |
|---|---|---|---|---|---|
| Target | N/A | 0.179 | 0.175 | 0.171 | 0.167 |
| Actual | 0.184 | 0.176 | + | ||
| 2003 | 2004 | 2005 | 2006 | 2007 | 2008 | 2009 | |
|---|---|---|---|---|---|---|---|
| Target | N/A | N/A | 0.16 | 0.16 | 0.15 | 0.19 | 0.19 |
| Actual | 0.19 | 0.19 | 0.20 | 0.19 | + | ||
Performance Issue (DOT-wide)
Motor vehicle crashes are the leading cause of death and disability for Americans age 2 through 34. Traffic crashes cost our economy approximately $230.6 billion (in 2000 dollars) or 2.3 percent of the U.S. Gross Domestic Product. This figure includes $81 billion in lost productivity, $33 billion in medical expenses, and $59 billion in property damage. Furthermore, this translates to an annual average of $820 for every person living in the United States. The average cost for a critically injured survivor of a motor vehicle crash is estimated at $1.1 million over a lifetime. DOT seeks to attenuate this major public health problem and avoid the pain, suffering, and economic loss to our Nation by preventing highway crashes and alleviating the effects when crashes do occur.
A preview of results from the 2006 Annual Assessment of Motor Vehicle Traffic Crash Fatalities and Injuries indicates a reduction in both fatalities and injuries for people involved in motor vehicle crashes. In 2006, 42,642 people died in traffic crashes, a drop of 868 deaths compared to 2005 (43,510). This equates to a 2 percent decline in traffic deaths and a historically low fatality rate of 1.41 per 100 million vehicle miles of travel (VMT), compared to 1.46 in 2005. This is the lowest highway fatality rate ever recorded and the largest drop in total deaths in 15 years.
Most significantly, fatalities of occupants of passenger vehicles—cars, SUVs, vans and pickup trucks—continued a steady decline to 30,521, the lowest annual total since 1993. However, the successes in the 3.3 percent reduction in passenger vehicle occupant fatalities (to 30,521) and the 1 percent reduction among non-occupant (pedestrians, cyclists, etc.) fatalities (to 5,740) were minimized by a rise in the number of motorcycle fatalities for the ninth consecutive year. Motorcycles continue to be of particular concern, playing a large role in offsetting other fatality decreases with a 5.1 percent increase in motorcycle fatalities in 2006 (to a total of 4,810), an increase of 127 percent since 1997. Although motorcycle fatalities increased in 2006, the rate of increase in motorcycle fatalities decreased from the 13 percent increase in 2005 to a 5.1 percent increase in 2006. The number of pedestrian fatalities decreased from 4,892 in 2005 to 4,784 in 2006, a 2.2 percent decrease, whereas the number of cyclists killed decreased by 1.7 percent from 786 in 2005 to 773 in 2006. Fatalities among large-truck occupants were essentially the same, with an increase of one fatality to 805 in 2006, a 0.1 percent increase. Another troubling trend is in alcohol-related fatalities, which were also essentially flat, with an increase of 0.1 percent for fatalities involving a blood alcohol content of .08+.
Fatalities often receive more public attention than injuries from traffic crashes. However, the societal toll in hospitalization, medical costs, lost productivity, and pain and suffering are a significant burden on individuals and on our society. Like fatalities, injury trends are dominated by highway crashes, accounting for 99 percent of all transportation-related injuries. In 2006, injuries also declined to just under 2.6 million people being injured in motor vehicle crashes compared to nearly 2.7 million in 2005. The data shows that the number of people injured declined in all categories except motorcycle riders and that the decline was highest for large-truck occupants (15 percent) and passenger car occupants (6.2 percent).
Reduce the rate of passenger vehicle occupant highway fatalities per 100 million passenger vehicle miles of travel (VMT).
The passenger vehicle occupant fatality rate has declined sharply since 1995 when the rate was 1.44. In 2005 (the latest rate data available), the passenger vehicle occupant fatality rate declined to 1.15. In 2006, the number of passenger vehicle occupant fatalities (includes passenger cars and light trucks) decreased to 30,521 from 31,549 in 2005, a reduction of 3.3 percent. The drop in passenger car occupant fatalities was for the fourth year in a row, while the drop in light-truck occupant fatalities was the first since 1992. The FY 2009 target for passenger vehicles is 1.02. The 2009 passenger vehicle occupant fatality rate is projected at 1.04. If DOT can maintain the same level of progress in behavioral programs and roadway infrastructure improvements as it has achieved in the past and the VMT remains essentially unchanged through 2009, a 1.02 per 100 million passenger VMT fatality rate in 2009 will potentially save an additional 550-584 lives compared to the projected 1.04 rate.
Reduce the rate of motorcycle rider highway fatalities per 100,000 motorcycle registrations.
Motorcycle rider fatalities have increased each year since reaching a historic low of 2,116 fatalities in 1997. In 2006, motorcycle rider fatalities increased for the ninth year in a row to 4,810 from 4,576 in 2005. This is a 5.1 percent increase in just one year and accounts for 11 percent of the 42,642 total fatalities in motor vehicle crashes in 2006.
Data from 2005 (latest data available) show that motorcycle rider fatalities increased for every age group; however, the largest increase was in the “50 and over” age group, followed by the “20‑29” and the “30-39” age groups. Significant increases again occurred among older riders (40+) who are primarily riding large engine (1,001 cc and above) motorcycles. Increases also continued to occur among younger riders (younger than 30) riding medium engine (500-1,000 cc) motorcycles. In addition, speed continued to be a major contributing factor in motorcycle crashes especially among the younger riders. Likewise, the number of motorcycle riders killed in alcohol-related crashes increased by 10 percent.
As of November 2006, 20 States, the District of Columbia, and Puerto Rico require helmet use for all motorcycle operators and passengers. In another 27 States, only those under a certain age, usually 18, are required to wear helmets. Three States do not have laws requiring helmet use.
According to the Motorcycle Industry Council (MIC), new unit motorcycle sales continued to climb in 2004 (latest data available), rising through the one million mark and reaching levels not seen since the 1970s. MIC data indicates that in 2004, 725,000 new-on-highway motorcycle units were sold, marking the 12th consecutive year of growth for the U.S. motorcycle market. As a result, State operator training programs continue to have difficulty meeting the increased demand for their services.
Like other road users who are urged to protect themselves from injury or death by wearing seat belts, driving unimpaired, and observing traffic rules, many motorcycle deaths could be prevented if motorcyclists would take responsibility for ensuring they have done everything possible to make the ride safe by taking operator training, wearing protective gear including helmets, and riding sober.
For FY2008, the Department re-baselined this measure to reflect a change of focus from fatalities per 100 million VMT to fatalities per 100,000 registrations. VMT is usually considered the best measure for exposure since it measures actual miles traveled. However, given that both fatalities and registrations climbed significantly over this period, the lack of change in VMT does not seem credible. Fatality data is collected through the Fatality And Reporting System (FARS). This data represents a complete census of all fatal crashes in the U.S. registration data collected by the States, and it is provided to the FHWA, which is responsible for the collection and publication of all exposure data (registration, VMT, licensed drivers). The VMT data collected by the Federal Highway Administration are from estimates gathered by individual States. However, State reporting of motorcycle VMT to the FHWA was optional before 2007. Even in States that report motorcycle VMT, it is often only measured as a standard proportion of total VMT rather than being collected directly through surveys or roadside counters. The FHWA estimates VMT for States that do not report based on data from states that do report. The accuracy of these counts is thus somewhat speculative. Additionally, motorcycle ridership (i.e. State registration) is itself dependent on high oil prices and successful marketing.
DOT has set its motorcycle rider fatality rate for FY 2009 at 77 per 100,000 motorcycle registrations. If fatalities and registrations continue to grow indefinitely at their recent pace, the projected rate in FY2009 is 78. Maintaining a motorcycle fatality rate of 77 fatalities per 100,000 registrations in 2009 would prevent an additional 77 fatalities compared to those anticipated by current trends.
A key FHWA effort to decrease motorcycle fatalities was the establishment of a Motorcycle Advisory Council (MAC) in 2006. The MAC has made several recommendations that the FHWA will consider for implementation including: developing a brochure urging government agencies to consider motorcyclists’ concerns during road design, construction and maintenance activities; encouraging State DOTs to create websites for motorcyclists to report roadway hazards; examining the skid resistance of intersection markings; continuing initiatives to improve retro-reflectivity of signs and roadway markings; reducing hazards associated with milled surfaces, parallel paving lane joints, drop offs at shoulders and bridge surfaces, parallel grids on bridges, steel plates, potholes and other uneven roadway surfaces; conducting a review of barrier designs used internationally and identifying those that are most forgiving when impacted by motorcyclists; considering signage targeted to warn motorcyclists of especially hazardous conditions; and examining the use of various sealants on road surfaces.
In FY 2008, data collection will begin on the NHTSA-sponsored pilot Motorcycle Crash Causes and Outcomes Study. The pilot study will acquire the necessary data to allow determination of an effective method for performing the full scale study that will determine the main factors contributing to crash causation in motorcycles. This study is a precursor to, and closely coordinated with, the larger FHWA study on Motorcycle Crash Causes and Outcomes. This research will allow specification of factors related to crash occurrence and calculation of the relative risk of crash involvement based on factors like age, gender, impairment, motorcycle type, riding experience, and speed. The NHTSA pilot study will collect a small sample of crashes in order to refine the data collection process, procedure and variables to be collected in the larger study. It is anticipated that the study will occur over a five-year period.
Reduce the rate of large truck and bus fatalities per 100 million vehicle miles of travel.
Fatalities among large-truck occupants were essentially the same in 2006, with an increase of one fatality to 805, a 0.1 percent increase in fatalities. In FY 2008, DOT changed the large-truck metric to include fatalities involving both occupants and non-occupants in crashes involving a truck with a gross vehicle weight rating of 10,000 pounds or more and/or a motor coach. The new measurement uses total VMT, rather than truck VMT. Total VMT captures the traffic volumes of all vehicles, which is important given that approximately three-fourths of fatal large truck crashes in recent years have involved a passenger vehicle. The FY 2009 target for large-truck and bus fatalities is 0.167. The estimate for potential lives saved if DOT reaches its FY 2009 large truck and bus goal is 541 lives, with some overlap for passenger vehicles.
The FHWA has no programs that are specifically focused on reducing large truck and bus fatalities. Rather, FHWA program activities are focused on improving highway safety for all users. The success of these program activities should positively impact large-truck and bus safety.
Reduce the rate of non-occupant highway fatalities per 100 million VMT.
According to 2006 data, the number of non-occupants of all types (pedestrians, pedalcyclists and occupants of motor vehicles not in transport and of non-motor vehicle transport devices) killed in motor vehicle crashes decreased by 1 percent, from 5,864 fatalities in 2005 to 5,740 in 2006. The number of pedestrian fatalities decreased from 4,892 in 2005 to 4,784 in 2006, a 2.2 percent decrease, whereas the number of cyclists decreased by 1.7 percent from 786 in 2005 to 773 in 2006. The DOT FY 2009 target for non-occupant fatalities is 0.19. The non-occupant fatality rate uses overall VMT data to calculate the rate since pedestrian, cyclist, and other non-occupant miles traveled are not available – meaning the numerator is much smaller in comparison to the denominator and changes in the rate are minuscule. When we take the projected 2006 rate out three decimal places it equates to .192. If DOT can reduce the non-occupant fatality rate to its 2009 target of .190, 59 lives would potentially be saved.
The FHWA has been working with the pedestrian safety focus states and cities (providing technical assistance and training) and encouraging them to develop pedestrian specific action plans to reduce pedestrian deaths by the end of FY 2008. By focusing on the states (Arizona, California, District of Columbia, Florida, Georgia, Hawaii, Illinois, Nevada, New Jersey, New Mexico, New York, North Carolina, Pennsylvania, Texas) with pedestrian fatalities above 150 or a fatality rate above 2.5 and cities (Los Angeles, Phoenix, Chicago, New York City) with the highest pedestrian fatalities, the FHWA hopes to have the greatest impact on those numbers. To date, New York City, New Jersey, Arizona, Phoenix, Chicago and Georgia have developed or are developing pedestrian specific plans, while others have at least incorporated pedestrians into their Strategic Highway Safety Plans (SHSPs). Many have modified dangerous roadways/intersections or made policy changes that will have an impact on pedestrian safety as result of the technical assistance that has been provided.
The FHWA promotes the use of different infrastructure countermeasures to improve pedestrian safety. For example, the Safety Office developed the Pedestrian Safety Guide and Countermeasure Selection System, which is an “expert system” intended to provide practitioners with the latest information available for improving the safety and mobility of those who walk. The online tool allows users to input basic roadway and crash information about a specific location and then provides the user with a list of possible engineering, education, or enforcement treatments to improve pedestrian safety and/or mobility. In FY 2008, the FHWA will release the Pedestrian Safety Guide for Communities, a user-friendly packet of information for communities to help educate them about pedestrian and bicycle safety matters and help them solve their safety issues, working within the guidelines/framework provided by documents such as the Manual on Uniform Traffic Control Devices (MUTCD), the American Association of State Highway Transportation Officials (AASHTO) Guide for the Planning Design and Operation of Pedestrian Facilities, and other current design manuals and best practices guides that may be applicable.
The FHWA will also complete a Congressionally-mandated report on pedestrian safety that will build on the current level of knowledge of pedestrian safety countermeasures. This report will identify the most effective advanced technologies and Intelligent Transportation System (ITS) countermeasures related to automated pedestrian detection and warning systems, road design, and vehicle structural design that could potentially mitigate the crash forces on pedestrians in the event of a crash.
The FHWA will continue to promote the application of Pedestrian Safety Audits, which consists of guidelines and a checklist. Road Safety Audits (RSA) are independent reviews of a roadway section or proposed project design by a multi-disciplinary team to identify potential safety problems or solutions. Pedestrian guidelines and a checklist will be incorporated into the existing RSA software. The pedestrian component will also be field tested and evaluated in several pedestrian Focus States and/or Cities. A comprehensive report will be available, which will discuss the results of field tests and identify any revisions to the checklist and guidelines.
| STRATEGIC GOALS & OUTCOMES by Performnce Measure |
FY 2007 ENACTED | FY 2008 ENACTED | FY 2009 REQUEST |
|---|---|---|---|
| 1. SAFETY STRATEGIC GOAL | |||
| A. Highway Safety | |||
| a. Passenger vehicle occupant fatality rate per 100 million passenger vehicle-miles traveled. | 6,120,933 | 6,926,055 | 6,575,973 |
| b. Motorcycle rider fatality rate per 100 motorcycle registrations. | 874,419 | 989,436 | 939,425 |
| c. Non-occupant highway fatalities per 100 million vehicle-miles traveled. | 874,419 | 989,436 | 939,425 |
| d. Large truck and bus fatalities per 100 million vehicle-miles traveled. | 874,419 | 989,436 | 939,425 |
| e. Other | ----- | ----- | ----- |
| Subtotal Performance Outcome | 8,774,190 | 9,894,364 | 9,394,247 |
| Total — Safety Performance Outcome | 8,774,190 | 9,894,364 | 9,394,247 |
This request allows the FHWA to conduct critically needed research and continue delivering technical assistance, training, and public awareness programs to advance priorities in the delivery of national safety programs. Funds from this request will be used for a full range of highway safety-related program efforts including: the implementation of new SAFETEA-LU provisions; redesign and construction of roadways and intersections to eliminate hazards; installation of safety improvement countermeasures, such as guardrails and rumble strips; and collection of crash and other safety-related data. Funds will also be used to assist State and metropolitan areas in developing plans and policies to improve safety and to educate decision-makers within the transportation planning process on the importance of safety.
SAFETEA-LU significantly increased funding dedicated towards Safety goal-related programs by establishing several new or expanded safety programs, including the Highway Safety Improvement Program (HSIP) and Safe Routes to School (SRTS) Program. This increase in resources will strengthen the ability of the FHWA to provide the technical assistance, training, and delivery of national safety programs requested by the States to impact the overall fatality rate, thereby improving Agency operations and saving lives. As required by SAFETEA-LU, all States had developed a statewide Strategic Highway Safety Plans by the end of FY 2007. The FHWA will continue to provide technical assistance and support to the States. These additional resources will allow the FHWA to maintain a high level of consistency in support of the States’ SHSP implementation activities and efforts to advance safety. Further, the FHWA will be able to provide direct technical assistance to local transportation agencies so they can assist local officials to make better decisions related to safety on their systems. There are more than 30,000 local road owners in the United States, and these resources will allow a more aggressive approach to be directly aligned with safety improvement on the local system.
Marginal Cost of Performance - Safety
As noted in the tables below, the FHWA will focus its efforts on achieving a reduction in the overall highway fatality rate by advancing program initiatives that save lives in roadway departure, intersection, pedestrian, and speeding-related crashes. To project the number of lives saved, the fatality rate for each of these four crash types in 2003 is the baseline for comparison of actual lives saved in 2004 and subsequent years. Estimates of lives saved in 2007 to 2009 are based on a target fatality rate for each crash type and estimated growth in vehicle miles of travel (VMT) or population for each of these years. When estimates for each of these four crash types are combined, a projected 4,303 additional lives would be saved in 2009, compared with a baseline of 53,211 lives lost due to these four types of crashes (this figure is greater than the total number of fatalities due to the fact that many fatalities are ‘double-counted’ due to multiple contributing factors). The incremental improvement from 2008 to 2009 is 655.
Agency Output or Outcome Measure Associated with this Program Increase(s): Highway Fatality Rate, expressed as the number of lives saved in roadway departure and speeding-related per vehicle miles of travel, and the intersection-related and pedestrian-related crashes per population.
Performance Measure: Number of lives saved in roadway departure crashes. Baseline is 0.88 fatalities per 100 million vehicle miles of travel (VMT) or 25,576 fatalities in 2003. Target rate for 2009 is 0.82 fatalities per 100 million VMT.
| 2004 | 2005 | 2006 | 2007 | 2008 | 2009 | |
|---|---|---|---|---|---|---|
| Target | N/T | N/T | 1,296(r) | 1,535(r) | 1,797(r) | 2,073 |
| Actual | 523 | 1,054 | 1,860 | N/A | N/A | N/A |
Performance Measure: Number of lives saved in intersection-related crashes. Baseline is 3.23 fatalities per 100 thousand population or 9,362 fatalities in 2003. Target rate for 2009 is 3.05 fatalities per 100 thousand population.
| 2004 | 2005 | 2006 | 2007 | 2008 | 2009 | |
|---|---|---|---|---|---|---|
| Target | N/T | N/T | 396(r) | 445(r) | 494(r) | 544 |
| Actual | 337 | 348 | 826 | N/A | N/A | N/A |
Performance Measure: Number of lives saved in pedestrian-related crashes. Baseline is 1.65 fatalities per 100 thousand population or 4,774 fatalities in 2003. Target rate for 2009 is 1.54 fatalities per 100 thousand population.
| 2004 | 2005 | 2006 | 2007 | 2008 | 2009 | |
|---|---|---|---|---|---|---|
| Target | N/T | N/T | 139 (r) | 185 (r) | 247 (r) | 310 (r) |
| Actual | 180 | (18) | 123 | N/A | N/A | N/A |
Performance Measure: Number of lives saved in speeding crashes. Baseline is 0.47 fatalities per 100 million vehicle miles of travel (VMT) or 13,499 fatalities in 2003. Target rate for 2009 is 0.41 fatalities per 100 million VMT.
| 2004 | 2005 | 2006 | 2007 | 2008 | 2009 | |
|---|---|---|---|---|---|---|
| Target | N/T | N/T | 1,089 | 858 (r) | 1,111 (r) | 1,376 (r) |
| Actual | 553 | 378 (r) | 531 | N/A | N/A | N/A |
| Incremental Performance Target (With Program Changes) | 627 | 655 | ||||
| (Total) Performance Target (With Program Changes) | 3,648 | 4,303 | ||||
Revised figures above reflect updated ‘actual’ data from finalized Fatality Analysis Reporting System (FARS) for 2005, or 2006, as available at the time calculations were performed.
Note: Actual VMT was 2,965 million miles in 2004, 2,989 in 2005, and 3,014 in 2006. For this study, VMT is projected at 3,015 million miles in 2007, 3,049 in 2008, and 3,092 in 2009. Actual Population was 292.801 million in 2004, 295.507 in 2005, and 298.217 in 2006. Population is projected at 300.912 million in 2007, 303.598 in 2008, and 306.272 in 2009.
Performance Issue (FHWA Priority Areas)
The FHWA safety program continues to concentrate efforts to reduce the number of fatalities in four types of crashes: roadway departures, crashes at intersections, collisions involving pedestrians, and speeding-related crashes. Approximately 60 percent of the fatalities occurred in roadway departure crashes in 2004, for example, those involving a single vehicle running-off-road or a head-on or sideswipe collision with another vehicle. Roadway departures, including run off-the-road and head-on crashes, accounted for 24,806 fatalities in 2006, a 2.7 percent decrease from 2005. Safer highway and intersection designs and smarter operations will remove roadside hazards and help keep vehicles on the roadway. Also, 8,797 fatalities occurred in crashes in 2006 between vehicles in collisions at intersections, a decrease of 4.8 percent from 2005. The FHWA will continue to promote the use of comprehensive intersection design and operational tools and enforcement strategies and will assist States in improving intersection safety problems at specific locations. Pedestrian deaths decreased 2.2 percent from 4,892 in 2005 to 4,784 in 2006. The FHWA will continue to target crash causes in major urban areas and select rural locations and facilitate community-based programs that fully and safely accommodate pedestrians.
FHWA safety-related programs and funding continue to yield benefits for communities across the U.S., including improvements in system conditions and operations. Construction programs improve the safety of roadway designs and operations, improve the condition of bridges, and remove roadway hazards. As illustrated in Figure 1, the FHWA actively pursues improved highway safety through a comprehensive, multi-faceted approach, which recognizes the role of Engineering, Education, Enforcement, and Emergency medical services (the 4 Es) in delivering effective programs and projects.
|
FHWA National Performance Objectives Implement comprehensive, integrated and data-driven safety programs at the Federal, State and local level, including State and non-State owned roadway systems. Implement countermeasures to reduce highway-related fatalities, with a particular focus on reducing crashes due to roadway departues, at intersections, pedestrian-related, and speeding. |
 |
Reduction in transportation-related deaths and injuries. |
Figure 1. Relationship between Safety-Directed Program Objectives and Outcomes. |
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As part of its comprehensive safety program, FHWA staff worked closely with State highway engineers and law enforcement officials to identify appropriate engineering safety countermeasures for high-risk locations and new roads. Examples include promoting greater use of roadway improvements such as upgraded guardrails, cable median barriers and rumble strips, retroreflective signage, improved markings, and removal of roadside hazards.
The FHWA pursues improved intersection safety through a multidisciplinary approach that includes working with industry partners to develop solutions and strategies including: engineering and technology improvements, intersection safety audits, red-light enforcement cameras, training for local safety professionals, and increased public awareness. The ITS program continues efforts to develop technology-based systems that could significantly reduce intersection crashes. A major component is the recent construction of an intersection safety test facility at the FHWA Turner Fairbank Highway Research Center and the development of a Cooperative Intersection Collision Avoidance System (CICAS) to help drivers avoid crashes at intersections. The CICAS is one of the Department’s priority ITS programs, and it seeks to assist drivers in making safe turns at signalized and unsignalized intersections and avoiding traffic control (stop sign and traffic signal) violations.
To counter the serious issue of pedestrian fatalities, the FHWA continues to actively pursue improved safety through a comprehensive approach. This includes partnering with State and local officials, concerned citizens, local business leaders, schools and youth organizations and incorporates targeting crash causes in major urban areas and select rural locations.
To lessen the occurrence of speeding-related fatalities, the FHWA is working cooperatively with NHTSA and FMCSA on an integrated and balanced 4 Es approach to manage speed and crash risk.
Anticipated FY 2008 Accomplishments
The FHWA plans to continue implementing a focused approach to improving highway safety. Specific topic areas of importance within targeted focus States will be designated for attention, including fatality-producing crashes that involve roadway departure, intersections, pedestrians, and speeding and assistance will be provided to reduce fatalities in these areas. Assistance to States in the implementation of SHSPs will continue. All States developed a SHSP by the end of FY 2007.
Safety, System Performance and 21st Century Solutions
The FHWA’s planned activities include several specific action initiatives directly related to the Safety Goal. These initiatives are:
- Improving the quality of State DOT HSIPs – In FY 2008, funds will be used to: (1) provide program delivery, national policy leadership, technical assistance, and technology deployment assistance to State DOTs; (2) complete the Safety Analyst software tools and associated reports; (3) incorporate these Safety Analyst software tools in the Highway Safety Manual; and (4) improve the quality, timeliness and comprehensiveness of the crash and roadway data used by the States to make safety funding decisions. The expected outcome is improved highway safety and a reduction in fatalities and serious injuries nationwide and alignment of SHSPs and HSIP funding. This initiative is expected to have reached significant milestones by December 2008.
- Implementing SHSPs in all States – In FY 2008, funds will be used to: (1) have the Office of Safety offer national policy leadership and technical assistance to states in support of all States developing and implementing SHSPs. The expected outcome is coordinated statewide safety programs that bring safety partners together to make data-driven decisions and leverage limited resources for the greatest potential in reducing statewide fatalities. All States had completed and approved SHSPs by October 2007.
- Administer the SRTS program – In FY 2008, funds will be used to: (1) ensure that all State DOTs have a full-time SRTS coordinator, which was achieved in December 2007; (2) ensure that all States have announced SRTS funding; and (3) report to the Secretary on strategies to advance SRTS nationwide. The expected outcome is the improved safety of children walking and biking to school. These initiatives are expected to have reached significant milestones by December 2008.
- Improve Older Driver Safety – In FY 2008, funds will be used to: (1) publish the Final Rule on sign retroreflectivity, which was achieved in December 2007; (2) develop guidelines for cross-walk lighting; and (3) develop capability to assist State DOTs in sharing best practice information. The expected outcome is the reduction of older driver fatalities and injuries. These initiatives are expected to have reached significant milestones by December 2008.
- Manage Speed – In FY 2008, funds will be used to: (1) employ the 4 Es to more effectively manage speed and reduce speeding-related fatalities and injuries. The expected outcome is the reduction in speeding-related fatalities and injuries, including the completion of several technical guidance products. This initiative is expected to have reached significant milestones by December 2008.
- Promote the use of roundabouts – In FY 2008, funds will be used to: (1) develop products and policies to promote the wide-scale implementation of roundabouts. The expected outcome is an increase in the number of States and local agencies constructing modern roundabouts. This initiative is expected to have reached significant milestones by December 2008.
During FY 2008, the FHWA will continue to strategically focus upon States with higher fatality rates to implement proven measures to enhance safety and assist State and local governments to implement safety programs. These actions will help the FHWA meet the following objectives:
- An increase in the number of States that implement planned countermeasures from roadway departure safety plans, intersection safety improvement plans, pedestrian safety plans, and speed management safety plans to reduce the number of fatal crashes.
- Improvement in the quality of safety data in all States and in the quality of the HSIP.
- Increase the level of technical assistance and training to implement new programs.
- Improve the overall HSIP by rewriting the 23 CFR 924 regulations to reflect state-of-the-art safety practices via the regulatory process.
- Use of outreach and marketing materials to facilitate new State and local program implementation.
Progress in these areas should contribute to a downward trend in the national fatality rate, which translates into an increase in lives saved.
Federal Lands Highway (FLH), through a partnership with the National Park Service, using the Park Roads and Parkways Program, will continue development of a Safety Management System (SMS) by using crash information assembled in a new Safety Summary Report. The system will provide valuable crash safety and fatality data that will enable the FHWA and its partners to develop targeted strategies to address problem areas.
The Forest Highway Program is unique in that project delivery decisions are addressed through a tri-party agreement between the FHWA, the U.S. Forest Service and the State departments of transportation. Individual arrangements in 42 states make the collection of safety data challenging, since many of the Forest Highways are owned by multiple jurisdictions. FLH anticipates completion of a unique SMS for the Forest Highway Program through the combined use of available data and road safety audits.
A draft SMS will be presented to the Bureau of Indian Affairs. Outreach to the tribes will be undertaken to encourage their participation in sharing safety data to support the SMS. FLH will continue to emphasize the importance of road safety audits (RSA) in this system by leading RSAs for various Tribal lands.
FY 2009 Performance Budget Request
Federal-aid Highway Program
Safety funding consists of two basic types of FHWA funding sources: funds dedicated to safety purposes such as the Highway Safety Improvement Program (HSIP) and Safe Routes to School (SRTS) program, and funds utilized by States to support safety infrastructure and operational improvements as part of Federal-Aid programs such as National Highway System (NHS) and Surface Transportation Program (STP). The Federal-Aid Highway program funds are used by States to improve the safety of roadway designs and operations, improve the condition of bridges, and remove roadway hazards.
The FHWA will continue to assist States with the implementation of SHSP and safety planning where data show a need to reduce injury and fatality rates. The HSIP will continue to provide States with flexibility to use safety funds for projects on all public roads and publicly owned pedestrian and bicycle paths and to focus efforts on implementation of a State SHSP. States are required to collect data, analyze highway safety problems and produce a list of projects to be funded based upon the analysis. Data analyses will identify specific countermeasures, which can include installing traffic control devices at high crash locations, establishing roadway departure warning devices including rumble strips, and improving highway signage, pavement marking, and signalization.
Rural two-lane two-way road fatality rates are over three times higher than on the Interstate. To address these higher rural road fatalities, highway safety program funds will provide a foundation for safety improvements in areas where the greatest need exists. The High Risk Rural Road section of the HSIP sets aside $90 million for FY 2009 to address safety considerations and develop countermeasures to reduce these higher rural road fatalities.
The FHWA will also continue to concentrate its efforts in reducing the severity of crashes through roadway infrastructure and operational improvements. Planned activities include funding safety improvements to the national highway infrastructure including roadsides and intersections, and promoting better geometric design, utilizing more durable pavement markings, installing more visible roadside signs and increasing skid-resistant roadway surfaces to enhance safety. The continued use of Road Safety Audits assists communities with safety improvements in the construction of new roadways and reconstruction of existing roadways.
An example of how effective roadway safety improvements can be in reducing crashes and fatalities is a cable median barrier solution pursued in Utah. The Utah Department of Transportation (UDOT) identified a serious and growing problem with median crossover fatalities and serious injuries on I-15 in the Provo/Orem area. A six-lane 15-mile segment with an annual average of 92 crashes that resulted in five fatalities and 22 serious injuries was reaching capacity but was not scheduled for reconstruction for at least two years. While median barriers would mitigate the problem, the investment of limited safety funds for a two-year period was questioned at first.
Using high-tensioned cable barrier as an interim solution seemed viable to UDOT, especially considering that reusing the cables could recapture nearly half of the costs. After the barrier was installed, there was a reduction of 91 percent in the annual average of fatalities and injuries on this segment of I-15. Considering the number of likely crossover crashes prevented, crash reports suggest that more than 40 high-speed crossovers were prevented in less than 2 years. In addition, reuse of the cables and hardware in other projects has recaptured up to 45 percent of the cost, producing a greatly reduced net construction cost at each location.
Pedestrian and intersection safety improvement programs will also be addressed through the HSIP program. As an example, the State of New Jersey annually identifies its top pedestrian crash locations for improvement with HSIP funds. One such project was done in Palisades Park at Route 93 and CR 501. Pedestrian signal heads were added at every corner of the intersection, as were crosswalk markings, and the side streets were re-striped to restrict the left lane for left turns only (many of the pedestrian crashes were caused by left turning vehicles). A lower crash frequency (.7 per year vs. 1.5 per year) has been reported as a result. In addition to pedestrian-oriented projects supported by the HSIP, the Safe Routes to School (SRTS) program empowers communities to make walking and bicycling to school a safe and routine activity. The program supports a wide variety of programs and projects, from making safer street crossings to establishing programs that encourage children and their parents to walk and bicycle safely to school.
In one specific area to address intersection safety, the FHWA will work with the Federal Railroad Administration and the Federal Transit Administration to further reduce the number of incidents at public highway-rail grade crossings. The number of crashes at crossings has been reduced by 75 percent since 1975 with the installation of lights and gates, signing and roadway geometric improvements. In FY 2009, $220 million is set aside to address grade crossing safety countermeasures.
An example of an intersection safety project involved the intersection of State Highway 13 and County Road 2, both with 55 mph speed limits, with two-way stop control in a rural area of Scott County, Minnesota. There had been two fatal crashes and 50 injury crashes in a five-year period at this intersection. A traffic signal was considered for this location, which would mean added delay for the mainline traffic when stopped for the cross street traffic. The solution was to construct a roundabout, thus allowing free flow traffic from all legs and increasing safety by reducing conflict points and eliminating the high-speed right angle crashes that were occurring. The roundabout was opened to traffic in September 2005. Operations were observed during a rush hour period with approximately 700 approaching vehicles, with about 90 percent of them not having to yield before entering the roundabout. During the 12 months after installation, there was only one reported crashing involving a single motorcycle traveling too fast in the roundabout and running off the road.
Speeding-related crashes will also be addressed through the HSIP program. A coordinated speed management program in Minnesota is an example of a project that was successfully implemented. The Minnesota Department of Transportation and Department of Public Safety combined the setting of credible speed limits with strict enforcement and education campaigns to increase voluntary compliance, reduce excessive speeds and reduce fatal and injury crashes. This program, in concert with other efforts, resulted in reductions in the number of speeders and reductions in the number of fatal and life-changing crashes.
Federal Lands Highway
Federal Lands Highway (FLH) will continue to advance its safety initiatives through development and implementation of safety management systems. For programs that are enhancing or developing data systems, FLH will execute safety strategies based on the safety data and deploy strategies to strengthen our approach for planning, designing, and constructing roads and bridges. This will be a major advancement, especially for the Park Roads and Parkways Program, because much more crash data is available now than ever before. Generally, the goal is to continue movement from the tool development stage to the development and deployment of corrective actions based on the safety data. The outcomes should be a safer visitor experience at parks, refuges and forests and safer travel for tribal members who use Indian Reservation Roads facilities daily.
Research and ITS
Five critical areas will continue to be addressed in FY 2009: roadway departure crashes, intersection fatalities, pedestrian fatalities, speeding-related fatalities, and advancement of a strategic approach to improving highway safety.
To address roadway departure crashes, research funds will support activities to enhance understanding of roadway departure crash causation, develop analysis tools and procedures to support better roadside safety design, refine and implement the Interactive Highway Safety Design Model (IHSDM), and develop and evaluate countermeasures to prevent and mitigate the consequences of roadway departure crashes. Outreach activities, including training courses, implementation materials, and demonstration and evaluation of technologies, will be critical components of this program.
To reduce intersection fatalities, research funds will support evaluation of innovative infrastructure and operational configurations at both signalized and non-signalized intersections, assess the safety and operational impacts of access management techniques on surface street networks, improve signal design settings to reduce red-light running at signalized intersections, and enhance tools for safety analysis of freeway interchanges. Road safety audit training and promotion of intersection safety analysis tools will be critical components of this program area. ITS technologies such as ITS-based intersection crash avoidance systems will be developed and tested. In cooperation with the automobile industry, work will also continue to develop integrated vehicle-based safety systems and to pursue vehicle-to-vehicle and vehicle-to-roadside communications.
To address the problem of pedestrian fatalities, FHWA research will include evaluation of the impacts of traffic calming designs on pedestrian and bicyclist safety and development of expert systems to evaluate pedestrian and bicycle improvement opportunities. The FHWA will continue to work in cooperation with the NHTSA on developing and evaluating comprehensive countermeasures and appropriate tools and technologies to improve pedestrian safety; integrating pedestrian issues in the planning, design, operations, and maintenance of roadway facilities; and implementing key recommendations from our partners and customers.
To address speeding-related fatalities, the FHWA will place emphasis on a speed management program that involves: evaluating variable speed limit applications; speed reducing treatments on main roads through rural communities; and implementation of rational speed limits, coupled with strict enforcement, including automated enforcement.
Towards establishment of a strategic approach to improving highway safety, the FHWA will enhance the functions of the Digital Highway Measurement System to collect roadway data; deploy and enhance the Safety Analyst software; evaluate the effectiveness of various safety improvements; and operate and maintain the fifth generation of the Highway Safety Information System. Research funds will also be used to develop, demonstrate, and implement techniques for States to collect better safety data; to use the information appropriately to support Strategic Highway Safety Plans; and to evaluate the success of safety programs. This will ensure that resources are allocated so as to provide maximum returns in reducing the severity and frequency of crashes.
In addition, the FHWA will conduct safety research projects that contribute to multiple objectives, including advancing visibility technologies and better defining the visual requirements of road users, and working on human-centered systems to incorporate human factors considerations into all aspects of highway design. Furthermore, the FHWA will conduct exploratory advanced research to identify, develop, and evaluate innovative methods and technologies to improve highway safety.
The FHWA Exploratory Advanced Research program will solicit safety research proposals to enhance understanding of the importance of the visibility of the roadway; develop innovative technologies to detect the presence of pedestrians or other vulnerable road users; create the parameters for a long-term ground traffic control system; and enhance understanding of the relationship between the vehicle (all types) and the roadway.
Management Challenge: Building on Recent Initiatives to Further Strengthen Surface Safety Programs.
For the past several years, the FHWA has advanced a “focused approach” to safety in which specific States were identified as Opportunity and Focus States. These States receive priority assistance and resources to advance their safety activities and initiatives. As part of this effort, the FHWA realigned staff, funding, and program priorities to support a focused approach that concentrates on reducing roadway departure, intersection, pedestrian, and speeding-related fatalities in these States. In addition, the FHWA partnered with States to provide support and technical assistance in the development and implementation of SHSPs as part of their efforts to advance safety within their States. SAFETEA-LU requires each State to develop a SHSP through a collaborative, comprehensive and data-driven approach.
SAFETEA-LU also significantly increased funding for Safety goal-related programs including the HSIP and SRTS programs. This increase in resources strengthens the ability of States and locals to deliver effective safety programs that lower the overall fatality rate and that save lives.
By implementing the focused approach to safety within the FHWA and among the States, and with effective implementation of the HSIP and other Safety programs within SAFETEA-LU, the FHWA believes the national fatality and crash rates will be significantly reduced.
Limitation on Administrative Expenses
FTE and administrative resources associated with this strategic initiative are as follows:
541 FTE and $92.4 million
Responsible Officials:
Mr. Jeffrey Lindley, Associate Administrator for Safety
Mr. John Baxter, Associate Administrator Office of Federal Lands Highway
Mr. Dennis C. Judycki, Associate Administrator for Research, Development and Technology
