Document 4vR9eoan1D8NmrZ8mxX5JjmwN

iP^, "\ * 31st NATIONAL SAFETY CONGRESS Street and Highway Traffic* Commercial Vehicle* Sessioas 4KJ CHICAGO October27*29* 1942 1t O' National Safety CotuicIL Ihc. ! 20NorthWack*r Drive, Chicago U Copyright, 1942) National Safety Council,1^Inc. . Printed inU&A. PLAINTIFF'S EXHIBIT PLAINTIFF'S EXHIBIT m^us&s I* M^.y? VOLUME n "S . UsingtbsTransactions........... .................... .......... ............................. . 3' ~ Tho CouadPa^Program........................ 4 Streatand Highway Traffic Section.. .5 Vdiick flection............. 125 Transit Section ..--............................ CUU Education 8ection .: :______ __ IV! `Homo Safety.....-------------- --------- ------- .229 Farm Safety .255 Tiifet 275r. * iw muijcnoni-w- tne.oiK jnttsoau wciy.coQfnsi looi Jstpoit* tion of theNational Safety Council are pobfished In two vbloiocfc Vol- ' time: I'.contains{the'OehenJ/Sabject;an<liinaM<ii^ aelaiqnt. Volume H the Public Safety, Child Education, Home and Farm Safety Volume I la dblribatedto all members oftheCouacil, Votame U to membert particularly inttreeled fat the sessions it contains. The Transactions are a .record of the proceedings of. die. Congress,,.--. condmacd andedited here for reference purposes. .Theyare therefore'0n:. abridged versiop^cf- the papersr and^dfaQtadona. '-.The.; original msmi* .. ecripts,aome of which hi^ drawings ahd eharts not reproduced here, ~ are available in die filee of-the NationalSafetyCoanciL The National Safety Council, at.ita Congresses, arrinto eliminate from discussion matters which arenot pertinentto.theainiaof tiie Coil*' Stm cr which are contrary to die CoondTspoBcies. However, it am* - not accept responsibility for views expressed, either in the {wpen ptt* *m---e-m* e- q-* o--r n2m t*o*--i--l reco- rdn ox menu (' Extra copies of the: Transactions inay'be obtained at the following rates: Volume T, one to tettcCopies at $220 each; i1 or more copies at $1.75 each. Volume n, additional copies,. 75 cents each. THE NATIONAL 20 N. Wacko Inc, The Ashed' safety safety actions . "Five-: lished ceasfui The -trialist votunx taintb ence c before For ranged 1 headin 2^abd back* *hg order' tones ..The locates items ' rmiitai ers'a divisk Safety Soh lodges with i nuhr aht'-.tn " troubl* worke The two volumes of Transactions pub* , Arousing interest he .safety in.the schools lisbed 'cach year are a- source of supply for and fat homes and farms becomes easier after safety ideas, for safety; method* and for reading. ;tiie : experiences. of the' speakers "at safety'material. Used effectively, the Trans the Chiid Educatioo, Farm Safety and Home - actions volumes am become, the nfety man's Safeiy sdufons. Several ,meetings concern . "Five-Foot Shelf"--ah encyclopedia of estab- curriculum probfems; others form machinwy iished methods as well as of the mosi suc hazards; and still othm houitiiola equip cessful experiment ment; civilian defense; and off-tfae-job acdf~\ The safety engineer, the prpgrestive industrialist, and students' of safety will find these votames valuable forireference.Th<ty con tain. Aebest knowledge andthe longexperieiice of thetnen and wotnen who appeared before the 31st Annual Safety Congress. dents. Speech-making matmals areabundsfnt'for the traffic engineer or the school or city offidalwhois scheduled to talk .on accident . -pretention; either in hiss own community or ' at conventions of Ins Own profesaion.The \ Foreasyusetbe material hasbrenar- ranged and; identified;/first; hjr the major headinga-.of ihcTabkof Contents onpage 2, ahd by the comprchenstvc.Zwdrx at tfae Transactions contain excellent exahqdes of safety talksaswellas authorities and quota tions foriocal press releasesy poster and-bul- 0 letinboards. baidc of the .b6b|c In the hody of the book eachgroop of meetmgs is printed in the same ' order'ih which they appeared in tbe dady timesebedaeof foe orighr*rbgfoiiu . Safety promotion /four always profit by new smd novel ideas. Speakersat the Congresses offer rich source materalfortbe pro motion of safety on highways, in homes and ' .The detailed alphabetical Index quickly: infsdiodlv. locates. spetiffiesafety materiaL It ; -lists fonts , in- three ways:-. (a)..;brr;s^echt;riifis^ _ cussed, i. ei, cydis^ household appliances, ' military coovoys, traffic "dim odfc^ ; (b) hy speakers, in thecase offonnal papers.Speakm* 'names' are printed^m italic&fi(c) fay the "v OntsUrndhig sajety teaders are powerful in; fij^now^^ prooiotion^of tfo1/national -' ' ^^^noveme^::^f'officm' orinemfaers of .... tbe-Cppntif's'/Si^^ they can befaelpfulm Organixing individual. division orgroup, as' Child . Safety, -'Home Safety.CFarin Safety, v Nalio^SafAyCou^Servicesand the' Solve accidentproblents. Trafficofficers, ,will 'be./bettei-:: tm- jndgcvhigbway ctstriictk>n meii are faced derstood /through, fi^pent me of the Trans- ' with unprecedented problems caused hy.'-tiie. 'actions/ ^mrvey'jof"tiie:material c^tained - mitdmoanng ofwar plant* jdld the attend-, in 'tids vtdtahe. tgflFgwca.hefe.-c^pbhefi^ - ahttr*ffic congestio&Not the least oftheir sioa of the g^pw^ppssw of tfo^etynkjvc- 'troubles is the cootrol and disdpline ofwar . mentand abetteruDdcrstanding of Ak -ways inwhidithispdweriSnadeeffective. O -*'" A r; )i The Council's Program s') The National Safety Council, a non-profit, taught how to do tiie job in tire safe way. cooperative association, aims at the.elimina .Therefore people must be taught how to live tion of accidents.(Tt-therefore advocates the safely. This teaching and training is a joint Stco* following program of safety activities: Creating interest in safety. People try to prevent accidents only when they are con vinced that (a) accidents threaten personal responsibility of industry, of schools'and col leges, of governmental groups, of parents in: the home, and of safety organizations.;. Supervision for safely. We need good fore- Third Pet Fowl happiness, industrial efficiency and economic men in industry, alert patrol boys in oar security; (b) accidents have definite, ascer schools, diligent police officers on our streets, tainable causes; (c) accidents can be pre- thoughtful parents in our homes. Supervi Chair Cbl vented. sion can greatly minimize tiie dances of -Chair accident, even -when people attempt know Finding accident causes. Accident causes are not ijhe same in any two plants, in any ingly to take risks. Sal two cities, in any.two schools. They are.not the same-from one time to another. Every organization must study the causes of acci dents In its own group so that prevention efforts will be effectively directed. Legislation -fok safety. Sound legislation mi traffic; on industrial matters, on public transportation, on home construction arid maintenance; and on many aspects of per sonal conduct provides a satndard to which > Maintaining interest in safety. It is the task of the newspaper, the radio, the maga zine; the school, tiie phblic speaker and every a large majority of people are willing to conform. It also provides a baas for requir ing tiie conformity.of a small minority. f f< k\ I? other educational influence to keep remind ing the worker, tiie driver, the pedestrian, the housewife and the school child that free dom from accidents is purchased by selfdiscipline plus active cooperation in the/na- Safety organisation. Every organization; regardless of its principal purposes, cab and should find some-place Jar safety in. its' program of activities. Accident , prevention should have a large place in tiie activities of p. I' tional program of accident prevention. Engineering improvement. Many accidents occur because equipment is faulty. The pouch trade .-associations, - diambers of cotmhercc, ` sendee dubs, welfare organizations, educa tional associations and local and state govern press is unguarded, the automobile brakes ments. - are worn, the stairway is crudely built, tire s stop sign is obscured. We must insist that ' Leadership. This program of activities^an^ & the things we buy--whether a stepladder dr a stop sign, a bandsaw or a blast furnace-- be safe things. And we must be willing if necessary to pay a higher price because of this built-in safety factor, realizing that it is be effective only with the interest and. coop eration ^Pefreryonc--tncn,wotnen and chil dren. Tne--Kaiiooai Safety Council provides national leadership jthrough which the safety efforts of all our people may be coordinated true economy to do so. and made effective. The. Council.offers.full est cooperation to all individuals, industries; Training for m/ety. Many accidents occur organizations; communities and agendes because the person involved never has been whose purposes are in accord' with its own. tv- . Street and Highway Traffic Section V . Officers 1941-1942 . General Chairmath-CAsi. J. Rutland, Texas Safety Association, Dallas, Texas. First Vice-Chairman---W. Graham Cole, Metropolitan Life Insurance Company, New York, N.Y. > .v Second Vice-Chairman--Don F. .Stives, Indiana State Police, Indianapcdis, Ind. Third Vice-Chairman--Walter B. Martin, Peoria Association of Commerce Safety Council, Peoria; HL Fourth Vice-Chairman--Arnold H. Vey, Trenton,' N. J. Chairman, Committee on Accident Record#--Wilbur S. Smith, StateHighway Department; Columbia, S. C. .. Chairman, Annual Congress Program Committee--Earl F. Campbell, Portland: Traffic Safety Cocnmissioa, Portland, Ore. j l |,Q r~ ' Members at Large-- Harry Barsantee, Supervisor Travelers Insurance Company, Hartford, Connecticut Captain C J. Scavarda, Traffic and Operators' License Division, Chief of Police; East Lansing, Mich. W. K. Incram, Chief of Police, South Bend, Indiana. r- Paul F. Hill, Director, Div. of Safety* Education, State Department of Public Safety, Des Moines, Iowa. i- D. Grant Mickle, City Traffic Engineer, Detroit, Mich. r. Ex-Officio, Former General Chairmen-- 1' PKoressoR. Roger L. Morrison, Department of Highway Engineering and Highway Transport, University of Michigan, Ann Arbor, Mich. Judge Harry H- Porter, Municipal Court Evanston, HI Secretary--Harvey D. Booth, National Safety Council,-Chicago, ID: f; General Chairman--W. B. Weaver, Marshall Field & Co, Spray, N. C r~\ Vice-Chairman--Frances Bethune, R. N^ Employers Mutuals, Charlotte; N. C Secretary and News Letter Editor--John J. Burger, W. J. Dickey & Sons, Tnc., Oella, Md. Engineering [and Safe Practices Pamphlet Committee Chairman--A- RoBEsrsj American I Mutual Liability Insurance .Co:,. Atlanta, Ga. Health Committee Chairman--M. F. Trice, N. C State Board of Health, Raleigh, N. C. Membership and Publicity Committee Chairman--W. H. Monroe, Alabama Departmentof 'Industrial Relations, Montgomery, Ala. Program Committee Chairman--L. L. Eaton, Liberty Mutual Insurance Co, Spartanburg, S. C _ Committee on Cooperation with Trade Associations; Chairman--F. H. Shutord, N. .C De- ' partment of Labor, Raleigh, N. CL .; > c' 5 ' "" Vi a 6 31st National Safety Congress / Visual Education Committee Chairman--H. McKelyie, Merrimack Manufacturing Co, Huntsville,-Ala. Members at Large-- J. E. Begebt, Johns-ManvOle. Corp, ManvOle, N. j... ... B. R. Brown, Columbia Mills Inc, Rosdand, Chkago, IlL J. T. Brown, E. I. du Pont de Nemours & Co, Inc, Old Hickory, Tom. H. R. Cory, Beacon Manufacturing Co,Swannanoa/N. C Arthur S. Johnson, American Mutual Liability Insurance Co., Boston, Mass. *F. E. Morris, Liberty Mutual Insurance Co, Boston; Mass. *T. A. Wilson, N. C Industrial Commission, Raleigh, N. C. Past General Chairman , 1 Officers 1942-1943f General Chahman^Cxui; J. Rutland, Chairman, Citizens Traffic Commission^ 518 Inter- urban Bldg, Dallas, Texas. " First Vice-Chairman--W. Graham Cole, Director of Safety, Metropolitan Life-Insurance Company, 1 Madison Ave, New York, N. Y. Second Vice-Chairman--Don F. Stiver, Superintendent, Indiana State Police,\ 125 State House; Indianapolis, Indiana. Third Vice-Chairman--Walter B. Martin, Secretary, Peoria Association of Commerce Safety Council/Alliance Life Bldg, Peoria, I1L Fourth Vice-Chairman--Earl F. Campbell, Executive Director, State Highway Traffic Advisory Committee, Insurance Bldg, Olympia, Washington. ChcdrmatS^ommttee on Accident Records--Wilbur S. Smith, Traffic Engineer, State -Highway Department, Columbia, South Carolina. - v v- Chairman, Annual Congress Program Committee--W. K. Ingram, Chief of Police; 222N. Main St, South Bend, Indiana. Members at Large-- CP1 CD - Judge Joe Brown Cummings, Municipal Court, 815 Stahlman Building,. Nashville; Tennessee. f' r. Paul F. Hill, Executive Secretary, State Highway Traffic Advisory-Committee; State Capitol, Des Moines, Iowa. Inspector Joseph B. Kennedy, Deputy Commissioner of Traffic; Cleveland Police De* . partment, Cleveland, Ohio. - D. Grant Mickle, City Traffic Engineer, 429 Wayne St, Detroit, Michigan. Ralph W. Robinson, Secretary-Manager, Greater Los Angeles Safety Counc2,Rm.. 222,530 W. 6th St, Los' Angeles, Griifonda. Ex-Officio, Former General Chairmen-- 'r Roger L. Morrison, Professor of Highway Engineering and Highway Transport, University of Michigan, Aim Arbor, Michigan. Judge Harry H. Porter, Chief Justice, Evanston Municipal Court, City Hall, Evanston, m. - ; D Secretary--Harvey D. Booth, Traffic Engineer, National Safety Council, Rm. 960, 20 N. Wacker Drive, Chicago, III. fAsdected by the delegates in Congress session. .> ' ;0 , Street and Highway Traffic Section 7 * TUESDAY MORNING SESSION -.'Q ' October 27, 1942 r. ' <:.3; JOINT SESSION WITH TRANSIT SECTION AND INSTITUTE OF TRAFFIC ENGINEERS - o Presiding:--Casi. J.Rutland, Chairman, Citizens Trafik Cotnmissioii,' Dalk&, Texas . Traffic Accidents and die War Program '.V By NED H. DEARBORN ' Executive Vice-President, National Safety. Council : CHAIRMAN RUTLAND: The first speaker on this program is Mr. Ned Dearborn,wbo many; of you know, love and have had association with, in years past Mr. Dear born ins named Executive Vice-President and Managing Dircctorbf the National Safe ty jGnmdl last July. Prior to that date and since 1934, 'Mr. Dearborn was Dean of die Division of General Education of New York University. He has been Vice-President for Education for die National Safely Council , for two years and for the-past year he. was Chairman of die Cohndl's special Financial Support Committee. ! He brings^to the Council .a bfoad backaground of administrative experienceindud-ing dose' contact with accident prevention and safety. He is responsible for the devdopment, four years ago^ oftheCenfer for Safety Education at New York University. Mr. Dearborn. ....- , MR. NED/fL DEARBORN: Mr. Chair^man. Ladies:and Gentlemen: There is one virtue in my remarks this morning. I am supposed to speak some place dse at 10:15 and therefore you may be assured dud this won't lie a long speech.; I 'am delighted,' rfcourse, to be united to speak to you peoplc and l have onfer two , or tfaree things that;! wanttoemphasize. r .realize thatinerophasizing than! am . merely cmphasizii^ soroednng Hat you peo* plehave bren worinng at constantly. ^ In the managemdit of die affairs qf the natkm thoe are problems thatconfroot us every day, problemsthat have, confronted . . ... (> the donunonwealdi of nations known as the United Suites America, store the motion of onr country, mad flat is the: amdtmt of power and controlto. bevested intffieFederal Govenmient, the amount cd powre and control to 'be vested in State Governments and in local communities and in the responsibilities to be placed upon individuals. i' O ' " ' l-/ ' .. . Balance of Power ' That may seem.like an old story, Ifatit is a. story that we. ought to keep constandy in mind--a story of those problems. There have been differences 'of opinion aboot it from the yoy beginningl There still aredifferences of opinion. We have maintained a balance in. this country1 -of power; amon federal,'' stateAand locil communities that seems, to me at least, to be a very-bealthftd land of balance. lit doesn't matter' whether we are dealing with die traffic problem or aqy other' important problem of American^fife. There are certain matters of principle and policy that are applicable to the nation as a whole. There are socne dot are peetdiariy state proUqns and there are some that are peculiarly -.community .problems. What we need to do is clearly to define die differences in our thinking mi specialized problems. If we happen to.be' a federal employee, we should not get the.idea that everything should comc out of Washington. If we happen to be- a state employ^, we should not think that everything should comc out of the state-, capital and if we are community nnnded we should-not think that the individual should 8 31st National Safety Congress be overlooked, either. I will come to that sponsibility. I have an illustration from the point just a little bit later. experience of die National Safet^jCoundl, When it comes to'this enormous traffic problem in die United States--132 million people over three million square miles of ter ritory--I can very well see how we could justifiably ask for complete control fay die federal government of those traffic problems. Rather, I think we should turn to the states and to die communities and ask diem to work out their local problems. If there is federal coordination necessary, then the state should work together with the federal agencies in the solution of those traffic problems. If we don't do something like that yon.may be sore there will be attempts made to cen tralize die control of traffic as in other cases, too, of American life, and I just think that as we are trying to work out this war pro gram, that I dunk will make the point dear. We have a good many leaders in safely throughout the country. There are public officials who are intensely interested in safety in one phase or another, both state and fed eral and local. There are private agencies that are interested in it There are local com munity councils that must carry die burden of responsibility, and yet, with all the leader ship that we have in pdffic and private life in the field of safety, that safety is Hunted in its operations, is limited in its effective ness unless there is general support by the , people for. die programs that they are ad-y vocating and advancing. v`--^ that is an impractical thing. That just happens to be thoroughly con sistent with ourtheory of a democratic life Federal Coordination and die freedoms that we have built up for individuals of this country; and along with We need federal direction so far as .co those freedoms which entail prerogatives (and ordination is concerned, particularly in war- advantages and rights wehavean equally time, when the movement of troops and ma terials is so important, but coordination does not mean complete control and complete re long list; an important list, of duties, respocsi- bilities or obligations. We .most therefore arouse the people of this country to die im sponsibility for die enforcement of die reg portance of the safety problem. Intbefidd . ulations. As a practical matter, I don't see of traffic it means that the people of dns how we can have a federal force large enough country must-understand why we have rides or well enough equipped to handle alone die and regulations. Assuming that those rides traffic problems throughout the extent of this and regulations aitffur and that they arc" tremendous country of ours. equitable and that tfaej^do the job that has For that reason, I am pleading for co ordination of effort to die advantage id the federal government with leadership from die to be done; then the people; with the knowl edge of that importance, will give support tor the leadership. federal government in this particular period of emergency, and I am also pleading for a maintenance of the autonomy of control, which seems to me to.be perfectly sound, with die several states. I am pleading, also, for the responsibility of communities within a state working with die state leadership in carrying out die regulations and rules tint have to be formulated for the easy and hit movement of troops and materials*in wartime. Furthermore, there is always danger of leadership getting tired after so many yean of struggle without support To go bade to the other side of the argument, if we have that kind of support, then we get more lead ers as time goes on. And so it becomes your responsibility, and mine, all of us who are interested iir this question of traffic safety, to cany oh constantly a program of educa tion that will enable the people of tills coun The whole theme of this part of my com try to grasp the seriousness of our traffic ment is "community responsibility" as a part problemiand to assume their individual share of the state and "state responsibility" as a . of responsibility in carrying out the rules part of the federal problem. and regulations that are required,. Individual Responsibility Now we come to the second phase of this question of responsibility--the individual re The War Emergency The second part of the comments are re lated to the attitude of tbeNational Safety Last forty < dents." killed ;Kpnor If tb and. ov ritory, dramat of this possibb It hi plants, food st duction tion an It has duction can't, a dents t! A se Safety traffic; ence tc will gf of tchc four n trarape correct can't i know t you kn requisi Ever to keq sible u matdni makes at the buses, madec diildre tion of We `. ft ' * i tlv Street ami Highway Traffic Section ,-. 9 Council program in this national emergency, dealing with the.traffic problem. First, we are concentrating on the protection of the -jgar worker. There' are nearly as many of thesS^peopIe being killed in traffic this year ~as^I^ and nearly as many workers killed in trafljcjb at work. Last year there were forty thousand--^ forty thousand people killed in traffic acci dents. This year there will be thirty thousand killed, and another-one hundred and five thousand injured in traffic accidents* If that loss were not spread over 365 days and. over, three-quarter million miles of ter ritory, it would be an appalling thing and a dramatic dung that would cause the people of this country to rise up and do everything. possible to stop it. It has its effect on the workers hi the plants. It has its effect on die production of food staffs for our army and for oar. pro duction workers and for our civilian popula tion and for our allies throughout the world. It has itseffect, a direct effect, upon pro duction. Thirty thousand people that we just can't, afford to lose are lost through acci dents that, for the most part; are preventable. CfflWf'VtllftB A second phase of emphasis in die National I Safety Council's program is conservation in ' traffic, with reference to vehicles, with refer ence to tires and with reference to roads. I will give you a single example irons the field of school bus transportation. There are about four million school children in this country transported by bus. If I remember the figures correctly there were 93,000 school buses. You can't replace those school buses, and yon know that they are needed elsewhere^ too and you know that the? are bring demanded and requisitioned for other uses. Everything is bring done that can be done to keep those vehicles in the maximum pos sible use. Instead,-of two or three buses cadi making onetrip in many places, now one bus makes two or three trips in the morning and at the end of the school day. Furthermore, buses, In addition to the use that is bring v made of them for the transportation of school children, are being used for the transporta tion of war workers. We can't possibly be interested in accident prevention and traffic .without taking into consideration the question of conservation of tiros, and tiie conservation of roads: We are interested in helping on the "swap- rides" and "staggered hours" programs. Spe cial emphasis has been placed upon traffic accident prevention during this emergency period to date. We ate also aware of the fact that the familiar ways to1 conserve man- ' power and equipment through traffic accident prevention; still persist and are as good as they ever were. I refer to uniform laws, as suming that the laws are equitable and satis factory. .* , I refer, also, to good accident records, to good -engineering, to good pdkmg/to good driver licensing, to good educational pro-, grams for school children and the public. Those things are going on even In wartime. All we do in wartimeis place new emphasis, the kind that I have mentioned or similar . ones, as the problems arise and then we are doing the job in a war emergency. War Production Fund The third part of the comment is more general m character and relates to our war production fund program. I assume that some of you at any rate know about that, but just in case there ought be a few who don't, we have a Committee known as "The War Pro duction Fund to Conserve Manpower."'It is headed by Mr. W. A Irvin, who has with him severalhundredof the leading in dustrialists of this country. That Committee is engaged in the raising of funds which will augment the normal funds of the National Safety Council in expanding and intensifying its program. That campaign is under way and meeting with great success. O- One of the principal things that we have agreed upon as a sound fundamental policy of the National Safety Council in develop ing this war program is cooperation with other agencies, both public and private, throughout the country. No one could pause for a moment in thejconslderation of this organization of ours and conclude that it could do the job alone. It doesn't matter whether we have our normal income, which is about a million dollars, plus the five million of the war production fund,rif they get that amount We still won't haws enough money 10 31st National :. to do h alone. If we had fifty tnQlipa,dollars we couldn't do..it alone; ;andrw]^;:is/raa .more iinportant,Uweb2dalltoeino(iiqrrdat was necessary to do it, it wouldn't be r^lit lor one organization to do it aloi^bmtitse in a country organized on the politiwtbebry thatonrs is, cooperation and ^coordination of effort should constantly be lhe;g^.?tiinimd which all-of us are working in dur various organizations. artirie So we are deliberately tryingtoenlistthe active support-and 4XMperatipu:;of^-every l<?nd.> of. agency throughout the 'Orartry m tfe: drive. We are offering our cooperation with all lands of agencies,; both govemhieutal and private. For example,I point to tbe;IEghway 9St;ia:% Traffic Advisoey ConmutteemWashing^no ,;Thiy,^^b(^d;^Be;:.____ ___________ ,,__ _ with its various sub-divisions (throughout rcspoosmtpmm * totprafit #ccii*j^;prp^:>. i :.WB *sM yng|p - hiicci-Vh ` Ne>*wtit&**-* the country) amongtbe various states. lt'is therefore primarily,- it seems to me, our |db first to undertake to .stirnnlate whcrever we~ can, through agendesboth pablicandprivate, tered, lm^y,;:to'?tn&-:;aca&^a^.:!hbm'.? work on theirpartwhicb will hit the local acddthti^',i-:-7.>:'vi-.':^'?'v yf'v ities where these OB-gam*ationsarevIf wrC have anything in the way of technical advice or materials we should providethatandif : g*?^ }> / there is anyotherageocy, bothpoblicand -. - In tiie;:fomtbt!^ipe..:;^^^la^rfewtlppingia private which we cah . wmk : with, tiiat: is^' program ;<rfrgriufcyiqr^ what we rixnild do and that is what we are tioa. Weknotrhow seriomtini^Itis series ' vFcw 'atiigm forth -raMbii ia&ib payfe <?:?# doing. 'are ;-.nhrat^^h^vsa3(m^to|t^d^h^^^ transportatiqn'ofcpe?^^ I ' short, aanal tbe?'to `Wat" Localities .; A^ddiay'-fo/Jrah^ hi the second plan, we are concentrating . '' M:- our efforts on the conununities where the largest concentrations of war worsen .and military people are located. It is prettynear- tt_*-- -- w '-W * -*- - M' e*. 'L'^r;4j ly useless, whhanysoin of money,'to try to do the same thing with the same intensity i. all over the country; at the sarhe .time. In a wartime it seems' logical that-wesboold select those areas where.the war production M&5) lehgei ure^oi .tM-tilr. and military forces of the country arefcon-.. A;:fifffi:tliii^p;fhitt^^^^ centrated in largest mmibers. . . tipal'toris'itite^sfictM^c^^ I should 'nitjyto As an example of one of the spots, we point . foraat^^VecM^^ to tiie work that our Division of Public Safely, under the leadership of Sidney :W31- - . liams, has done with the Rode Island Arsenal C in studying tiie problems erf traffic. We have had splendid response and cooperation :wnth the authorities there and H is a' perfectly good example of bow-two grot^s of people send'" can work closely together and get good re- ` notion: suits in a hurry. '' iitelledJ-hcSif^v twlj` " Qm1OOmQmpO latmei Ppo^i ha^Vd gramn ' 0; ,,,,'Avi-v .v, jrf-. ! r*: 12 31rf National Safety Congress ,,X meats which. they hive made. I tfiinfc you cmnetheimpdrtantalxessrdadstodiesevital know: of these. First, as amexnberofthis centers. panel, is Mr.Don F. Stiver, Superintendent o. ' . I .of th? Indiana State Police, Indianapolis, - I. have asked dw'land' to outiine;.T)oefly,. Indiana. Mr. D. Grant Mklde^Tiaffio Eagi- some of .the snbjects whitii have beenlisted neer for tfae Gty of Detroit and President on your , program; First; inborder, of their of the Institute of Traffic Engineds; Mr. listing, is the conservation of manpower, tires J. Trueman Thompson, Director of the High and vehicles, and certainly, if anyone can. way Traffic Advisory Committee totbe War talk oh'tbat shfijixt; it u Don Stiver.:' Department in Washington; Mr. Frederick - C. Horner, Chief of the Highway Division,. MR. DON F. STIVER: Mahers of die Transport Corps, Service of Sttpply*jltuted Panel, Ladiesand Gentlemen States Army. MrHorner comes to tins posi tion having served as Assistant to the Chair The impending program of gaMline rwtiati- man of General Motors Corporation. ing and speed limitation approved by die national committee headed by Bernard Barhcb At this time Iwill introduce Mr. Soren has dramatically engraved upon die jpridic - son who will assemble the panel and outline mlnd the urgency of our need for the conser to you his and your participation. Mr. Sor vation of tires and vehides, and other agen enson. - 7 - <-> cies have impressed upon us die need, for' manpower. The Baruch cxxnnritteewasap- MR. LESUE J. SORENSON: Thank" yon, Mr. Chairman. lajiw awl Gentlemen! pointed, to bring voices of authority htfouai. chaotic picture which few of us semafyears We all know that we carft win this war witb- ago_ever thought would come to pass.; out production of war materials and the as- sembling and training of manpower. We can To review briefly some of die salient facts, do neither of those things without a hundred I shall quote some of .the figures dottbtless per cent efficient transportation system. It is you lave heard numerous times: I cannot the key to die assembling of die materials refrain from reiterating diem as die founda and manpower to preserve our freedom. tion of onr problem. ;i . I don't know of a time in the history of ^ The manpower needs in die radon, for die our country when transportation meant so modi. Neither do I have to tdl yon of the next year are purely conjectural, bid so far as I understand them. Selective Service will, changes dial began last year in die defense be expected to provide die ajmy with ap program of our: country. After Pearl Har bor those changes became more radical; Street capacities and highway capacities dot proximately six'or seven. ntiOion.more men to firing its total strength somewhere itonnd ten million men. Tins is about one fourteenth had served unpopulated areas suddenly be came the access- roads for die accumulation the population, of the Umted States. Every one. seems `to have their favorite ratio of .toe of war production and die assembling of the number of civilians required to support a man armed forces. at the front, but if the popularly accepted - It wasn't possible of course;-and we ad ratio.of fourteen civilians for every soldier recognized that, to locate these vital indus is approximately correct it would mean that tries and these war assembly prints of the by that time; every dyiUan must be engaged armed forces on our boulevards and oh our' in war wojic to the"last man and woman. primary road systems. They had to be located (These figures do hot indude the estimated where facilities for die production of mar - three million persons which the navy, marines' terials and their location to die raw materials ~hnd coast -guard expect to procure sometime for putting it into the finished form was avail within die next year or two.) The persoand . able. drain will be terrific and far exceed anything we have., hitherto experienced. I anticipate Many thousands of miles of fine highways that long'before die ten mdlibn members of winch in peacetime serve die pleasure and the armed services have been procured,.1 the sometimes the business traffic of die War Manpower Gommis$i<marm have been . have been relegated to arteries of secondary. forced to take drastic steps id fill industrial importance; and some of our secondary and jobs and agricultural'occupations.This is unimproved streets and highways; have be- of course contingent npoh the necessity for cootin frozen ,'titereV fees--?! tires c inffie die lh ;:tw tires,.< berac lion pi but w . the hi had si of tire one'at will b used,-;: thebe needs, its.reg .;or; gp^rin^gagimb.^ TTi&e'was.-an tires, and a disama^ffitro^ffi^^ beranxmnting &*> gp"dv ** ** *** :a -gDpfflyjriumii^^^ '<raqiin.:xv1ip:^ ; .- _m_i_f_fi_o_&__ta__n_f'_r_a___ b^ereduced .to '...... ........ " ' " .....Tlras inrfive ye^ we:n^ht.^^^..c...t...t.o...he ffiive 'utfllion ve&dm:^ our total had snail hopes of'procanng of tires has been doled out byrationboard* one at; a time. . Unfortimatdycertain sizes will be run out whileotber,: lesspopularly , ' osed,tnay continue; to beuai^ ayaiwe cars to about twenty-one to twmity- tWo million automobiles.' Inthe hands of ^ d&en%>;had^ new and used car*; wbennew cairwerefrozen. At the na^ in fiyeytsurs thni^i:we can have tbatfor ani&^l*5?)ribanrh^H^^ aSunonajl. new. tires :ni^?aI&:ji^''waStv: said .aboat 22,00C^()b0 cars in varying degrees of Voperating" condition, front' thestandpoint of l^t/oor major-; ho^:;!for.!,ij^iol<o^Da^;:&eu>. live*, restsin dsoser^ l) : \:y " ?;* *?> . the-hope: of : According ;tp relable estintttevnot less needs,held out by the Baruch cooimittee in |fii^:/20u(^i^(lQ(i-;asrticnEka^ ^^re)':|rtimred V.^q itsrcports. V ...;-; .1 "f .. . preserve.Tessaitial: civilian - mobility at , its . mnnnmmTevd. ,Tht as far as the scrapping Coosttvsti^Mi jHcftSut '. of automoMes;is';dmcierned^'-we arenotabso- lately up against the walL . For: some months- anr the^coaWTatioo measures fprrednctajg tireand carmileage on passenger cars- has-been mderitte^ifin^. tionbf the Highway Traffic Advisory-.C&d*-',: mittee totheWarDepartmentatthe/^ Of the;Oflke;tfDefe^ ashmch as another penoir wfll'report qo tfus program . Ishallnot ^^^/nainre, taken. A presidentialprodaniation requesting speeds notabore dOmiles anbourwasanother. voluntary, 'stafa. Men deejdyinvolved in transportatkmproblenJS realized that this would not be a sufficient answer. Wehave Idt lor months that gasoline ratiorangwas inevitable' and that spdd iedttddon wodd probably have, to'-be xotnpdsory. Thubas b^en proven tropand vre -afe ntw on the .. . , * /T*S ' ' ' ` ' " ' - "j> . pbwtyer, one automobile:In.the hands of ^ pnraeqvme^ widi j^y tluw gopd tires, " -Is.ahn^'as^ asvm;aiitomdlrile~at jdL ; E^ .dton^wndt bia^ redtiction in the an- ; ; malVaverage fmit^Be^b^;'pMroB^sr^'Siri, Brbolcnigs Institati :iias otima^ -: niUnber; df;cafgf.'iit<di^.''tnffit^; . usatdeti^w^d^l.Mo ^u^erntaik : rd ^tv^ty'i^hm'sppDrdnw^ W end'' of 1943- Possibly this .deadline of :opaati<m can be ddayol widi. an. ex^todEd progniim' qf sjrnthetkrobbferprodurtiofpfordie;^ of dvitian tires: Recapped tires are hot long-.' lived however, pdrtKolarly at tbe faigher speeds, and wfll only take care of our basic .needs aivi no move. ." - tv verge ofthese fi^rcotxnrte steps to every last ounce of rubber-roll for the longest ~ -*' ;Cara:BsaentMl\' possible tinxon&eroadtovktciry. , We are bdinid the ei^t ball ip these nxat- While wearpcbnsd^ ; tma^wfcptiuatdy^ conserving. vehicle^ '-die.' pramarybottleneck r?alize_it;more ft^^j^^^j^^^ihbre^drasr - in transportation: tkaUy.^We ;^a|evf>, tire very 'good: jthat twt automobili will : semem^whht' We/^ wearoutone orVmore of their lait four tires these predons mafenals. Traffic( acC?dents vf' ``t*. 14 'V 31st National Safefy Congr&ss are no longer individual tragedies or the "Effect of.war conditions on traffic volumes." luxury bf a prosperous fast moving inde We are-fortunate in having a mah to .outline pendent nation. Every me of-them is a blow ` that problem.for us who is not odyGty at tiie security and welfare of eyery one. of Traffic Engineer of the City ofDetroit vrifidr ns.' The manpower cannot - be replaced, the is oneofthe first largie war production areas, damaged tires are useless except for scrap, but also a' man who ? has boen Prerideht of and tiie vehicles may likewise find their end the: Institute of TrafSc Er^gfoeers atod who on the scrap pile. Interestingly enough, dun- hasTteenredected again for. Ins smart term aged tires and automobiles at least can be sal- Iast night l know he can give us a braid vaged for scrap. A dead man is no good to ' conception because conditions certainly do anybody or anything. We cannot afford ex vary, not only in comnumities,not only-in tensive pleasure driving. We cannot afford states, but in the whole nation. speed, or'reckless driving, practices we have battled for so many years. - We shall have Grant Midde. :> to walk to tiie' grocery instead, of tilting around the corner. We shall have to learn to live at home and like it MR. D. GRANT MICKLE: Thank yo* MK Sonisnoo. ' * ,, ' ^ ' v From tiie standpoint of public officials the. The trend of traffic 1936 has been highway engineer will have to take what die affected materially fay .tiie production of gtiod government grants him and do tiie best autotaobiles. The production of automobiles he can to- relieve congestion and promote . since *36 has broken all previous record* and safety, around defense centers. State police that in turn has resdted.in.vthkiJar traffic officials must drain their troopers from lofig volunKs'^rhich, tn 1941, were almostCdcnble stretches of empty highways, concentrate tixse of 1936 mi7wbere in the country. That their traffic men around highways catrying in torn has^brot^ rtmth a nriikedmcrase war workers and military .personnel and in tiie number of. traffic engineers in the viri emphasise apprehensions for drunken driving ons cities throughout the .country as the re and speeding. Educators must continue to sult of higher traffic volumes, congestion, ac make safety an integral part of all their cidents and so on. C) teaching. Then, just prior to our entrance into tiie The Baruch committee has told us that our - r war and when America was serving as tiie proper conservation of tires and vehicles will arsenal for tee rest of tiie countries., who - mean tiie difference between certain defeat were actually engaged, in combat, we saw the and tiie hope of victory. We wOl be facing development of massive plants for the produc increasing'demands for robber and sled from tion of airplanes and ta^imdotherimplc-., ever diminishing' supplies. It's not a happy . ments of war in areas which we had never" thought and calls for strong measures. - even thought of as having industrial concen trations. Those, concentrations 'of., industries. -It's an odd commentary upon human nature brought proMemsnotonly in tiie nrhan that a world war should provide a greater areas but in the suburban; hud rural .areas. impetus for saving lives on the borne front ' than peace seemed to bring about Now that In tiie urban areas, for. example, we saw: we have been attached by outride forces we , a shift of traffic from a point oLview of time. trout declare a trace on our acrident waf-with: People wap working 24 hours arday rather , each other. Perhaps, with the lessons' of tins. than ait 8'hour or a lO hour shift We saw war, tiie breathing spell in traffic which it coorentratfons in the night honra wben we will provide, and a grim determination to had poor visibility rooditioos bcyoodany- . extend these principles of conservation into tiiing we bad expcrienced before m most of tiie future we may be aide to.make tiie acri these cities. - dent truce a permanent one. MB. SORENSON: Thank yo* Dim. The second item in tiie listjpl program is really the conclusion of tiie panel and we are going to go on to item Number 3 winch is the Area : n, Concentratiiro.mai^ signed for industrial ;<jperat^;^ die need for additional traffic signal*.People weroi went* ,deiigl ` ndw?< tothi teries, ' bhe--i artP;t} safety -devdc speed noon" antes attem; resgoi Tin twos, oldp availa . had., i holdei made of pe war p Mai with them that fa (dints mand had pi InJ Smida for* i tiled problc cal'o before ootiini ahdic Ant isted:.' velum planm froth? Iaad4 The theha rifiedh 'ytian^ Howe ''7'Sl^hwdy Tftiffic Section. v 15^ were^cMcwirtg tlrdy new.routes. Worker* Harbor and before this comfo^s^::iii&;^ ' wa^fgoing dedfi^wtraffic voiumert^ never .y^rthe^pi&f^ 0 mesmtthat -we' bad to'tmhk/critlfo^e^ arr. teries,' d^inste^tidn^miote traffic: signals, instituted tbdr progi^fpr/tw . lanemaHdngsapd^fe - transportation which arth^'d6ne."--to-"Improve the ^'ih^tutf<s'':'and;. staggcrhighours, Aie'estald&KxnenS?bl :^ifieferr. safety of traffic. New speedlhnits bad to be ential routes,and the:tororwti<m'of. vrndo - developed. :;\Roiitts:; not designed; forhigh and.tfoes; ;. 'T'' alter- noon driving were iicw carrying high yol- times :.of' 'b^'itpeed;!t(affic': ruii^people.' were attempting to drive, over-these notes at un reasonable'and unsafe speeds. .'Tbit'^meaint;nvisipo pf tbe speed regulaBoas, and in addition to thatwe had/the. We are' interested m l^armix^e tent we are conserving the' tires afodvehiefe that; wehave, throughasbaring of rideir.br swapping of rtd& jfben wesue interested in die volomesoftrafficandWe are interesfcedin 8P*d- ;'\V /o" ':'Vv.O- old: problem of regiriating tbe parkingnot only so that parkingfacflities could he made o r '< '.! v .'Car Occupancy; ' availablefor thewar workers but protection . had. io begiveo to ibe adjacent property holders so skots lp; tbeirpropertycouldbe made availabte'in. spite of thelarge volumes of .people ..who were. parking around these war plants.1- Car 9ccnpancy for .the last five or six , years in most cniiimiiniries has . sddoin been . dver l.6 a nation of inffividnalists. We; vramted toride alone and evety artery w^ mobiles"carrying only. 6us.:l=1^\iieh^n$i Many of the war plants were developed without adequate'. paridng space. Many of them were, expanded and the: parking areas that had previously been used in the smaller plants had now been turned into additional manufacturing facilities. What parking that had previously existed was just.wiped oat. resulting in ah average of 17 or 1.6 percar. Today, if we are string, to get by tbe transportationcrisisasar^dtof no moreantomobiles, no more tires, we must have . that tcar occupancy up to around 3^ or 4 persons per aar.y-tt is interesting to notejfoidfo a number of locaUrip/wb^ swapr.nffing prp8TM"* lave.'.been';'.tate/way .far;Sbme,)lfttte IiTd* stixtrbcm.aiwevery^ ' time that we Lare.'li^ : Sunday. Traffic volumes, as I mentioned be- _. figurettp to. yohmies^ ^ in fore; were maintaining high levels afl arotmd _ ; -fonwinstapic^V^i^tiimte^ die'' dock, /seven'; -dayr-a-'wek,bringing on ' ter^yvm aie'fttf' pur/mo^ai^s/mit\ m/dtie:: problems pf toforiccmcnt as wdl as of physi- /;IocaUtytItthejrb^ calcontrol that hadj/Dever been existent../persons .^'car.' ' before;and,theotb^^ whichl lave oqtiihed more frily, of speed arid accidents - Then, in crnmectionwith hafficvpiumes,as aridjid'oeu ! ; I said previoady tte ^urries^^ m^ Ml; before - .we; And in 3heTnira! areas, the same tbfog ex- . .gasoli^vww;'stfm^^ isteA. ' Icovered some of them in saying that 1 vdtnnes; and/.^ieeds./atid' so on/odpoorly ,.\faaye;alrdi^!i^;/gaSH^/mm(^ .;plaik^/h^itoya|rtiiat':;is;/: pom^plariped :. . iof/diisitw/vihdmtrM: _ Im3^isren^||90^%ca3nr7in^-/ ' umesaftrafikatspe^^ / - .die^mie: tutMeiin^ihtit/9e^l^- tunes, ^Sad*' alSO .tte;-:wCo^dgwvtMwMnis;?,v tmiiMI>mveHSyy.j^mwasi.s<- eetfaat; etldm cven^ig^ijg3^ ^`Aibndis.:heforePtori:' /going tol^vealbtbfpr^raisto^^^^ ^:- i6 31st National Safety Congress We are not going to have streets that .will bus inventory was carried on under the aus have no. vehicles-or no. people in them. We pices of this Committee for that purpose. In are going to have a traffic'problem and we addition to. that he required his increasing will certainly have a lot bf work to do. The army of motorized equipment to move over rural problem probably will not be severe. the highways with the minimum of friction Volumes there may drop as high as 65 pent withdvilian traffic. That , was another test or 75 per cent, as they already haveinsome that was assigned to us. The drivers of thebe' of the vacation areas. ffiotor vehicles must be people who are com petent to drive. Anangexnentshadtobehiade So, just to review, it doesn't appear that in order that camp Commanders in . malting with gasoline rationing, with raising the car those driver assignments would know whether occupancy and with the redaction in speed limits, that the problem is going to auto matically be solved for us. We still have serious problems of enforcement We will a man was a good driver or a bad driver from his civilian driver record in his home state. have serious problems of control, not having materials and manpower to do the job that we had previously, and all of us must be on the alert to see to it that our manpower and our vehicles /and equipment are kept rolling efficiently and safely. ' Those were the sort of problems that up till Pearl Harbor were entrusted to this Com mittee. The functions were carried out through Committees in each one of the states consisting of those people who could do that sort of job, such as the Commission MR. SORENSON: Thank you, Grant ers of Motor Vehicles, the heads of the Police Departments and the Commissioners or heads In my opening remarks I spoke of die im portance of transportation to the war effort That was recognized by die War Department of the Highway Departments. They are known as State Highway Traffic Advisory Committees. more than a year ago and was typified in the request by die War Department on Chief; After Pearl Harbor McDonald of the United States Public Roads Administration to form an instrument to delve into the traffic problems which they knew would arise all over the nation. A man was drafted to head up that organization. He accepted the draft and be is here to tell us about that organization. Immediately after Pearl Harbor it became apparent that the Secretary's responsibility and that our responsibility would increase tre mendously, and since that time, we lave had an increasing mxmbafjpf problems handed to us by die young(man, Fred Homer, here, through whose Division of Highway Trans Dr. Trueman Thompson of the Highway port in the War Department we operate. We Traffic Advisory Committee to the War De- . cany on surveys of various kinds and have partment carried on many of those in industrial areas, finding out die people, that work in plants, DR. THOMPSON: The Highway Traf how they get to work, how many cars are fic Advisory Committee to the War Depart-: owned and driven by die driver-owners, and ment is not a new organization, although what their seating capacity is so that we can my participation in it dates from about the . load them up. 8th of last April. It was originally set up ,; by the Secretary of War in order to perform The facilitation of the streets and highways several important functions, which he could system in the neighborhood of those plants is anticipate would be of increasing importance.. a part of our responsibility and it is . a part He must know where every commercial of the responsibility of you traffic engineers motor vehicle in the United States is, wbat ' to see to it that movements are facilitated to its carrying capacity is, what condition it is the utmost. Iifaddition to dial; we carry on in, who owns it, where is the garage in other kinds of"special.surveys. -- which it is kept, what is the telephone num ber of the garage and so forth. We have recently made one on the recap and retread situation throughout the United Accordingly, acting on those instructions, States. We move all sorts of special equip beginning about August, 1941, a truck and ment I can't say just what it was but ren. centl trern bad abou Stab that seel insta that ford Ai part assil of C lems enen ing < tod< lari] of t troo wha act: of tl trafl brid A cart fens pass that; to 1 of 1 Coo non towi they don und< all H ani j<* the V? vm | v? fifS*v m iw iiT B iiia T a . *i* w nT ,ia <? Street and Highway Traffic Section 17 ceritlyan experimental piece of equipment of believe we are going to fiiW it necessary to treroendous `Value^ irreplaceable in its nature, call on them for a great many other duties.. had to be.moved a long distance through about, eight states. It was necessary for these There.area great many changes that have State Committees to hop to it and see that taken place within the past few weeks in that piece of equipment wasmoved and to Washington due to the Jeffers appointment see to it that the piece'cotdd move in die first and due to the . preceding Baruch Committee instancy that the' routes were selected so report I am not at liberty to sdy just what dot it could get through die bridges, and so those changes will mean as for as this Com forth. mittee is concerned, 'but I am sure..that it means more work for the Committee. Every day seems to mean that and I believe that Possible Enemy Action die State Committees will have an increasing Another phase of the work for the War De partment has to do with the. officers who are function to perform, and the'same goes for die local administrators. assigned by the War Department to the Office of Civilian Defense. This category of profe lons has to. do . with what happens when die enemy gets busy or may get busy. If a bomb ing occurs in New York City, it is .necessary to do two dungs. One, to get people, particu larly wounded people and other refugees, out of thatarea and to get medical supplies, troops, equipment, food and heaven, knows what info that area: For tbat purpose we act in an advisory capacity to those officers oftbeOCD, the array offing in routing the traffic so that h may pa^mwni a damaged bridge or damaged highway finality. I was interested, in hearing Grant -Mickle say something about the car index, die rider index1 or die. car occupancy figures. I must amfless that l am disturbed about die lethargy with which dgt program seems to have met in a, very gfcat many traces, and pofadps -die majority of places, at least among the unorganized white-collared workers. As be said the car occupancy figure throughout the nation in normal times is about 1.6 or L7. There are still places where it exactly that, and where increases have occurred, the curve goes up very ?lowiy. I sun of die opin ion that it cannot be said that die car oco . Another fiugctiop which we have had to- pancy figure throughout die Dinted . States tarty out at tnj^peqoest.af the Office of De averages as much as 2. It possibly does. fense Transportation has to do with private .If so, it wiD not be more than 2, i passenger car conservation, hot order to do thaVthe State Committees had to have topis In contrast to that, in downs and dozens to work with, and through the land effort of plants where thi-se Labor-Management of Mr. Eastman and ourselves and the State Committees or these Transportation Com Committees and die Mayors and . die Gover nors, a total of some 160Q Committees in little mittees sure at work die index .figure is way up to 45,v4i> and I would say that for that towns and hi big towns haye been set up and group of people,, country-wide^ it certainly they are now functioning under the jurisdic averages 3. tion of the city anfhorities and particularly under the* Chairmanship of what is known as a Local Administrator. ^ Gas aticying I Local Administrators The most recent tinnfe which is going to happen fo ns--I should say to yon becanse.it has already happened to me as 1 live in the He is to lavc^ .I am sure^-an expanding and East--is gasoline rationing and in order to anincreasing importance in bis locality.His affeet the machinery for bringing about these . job originally was merrily to by to see that car-sharinggroups as rapidly as possible, di the city engineering forces and fhe'dty Police rectives are'now befog prepared in Wailfog- Department did everything possible to facili ton by the OPA, die OCD and qur own or tate movement through rearrangement of one ganization. They are parallel directives winch way streets, turns, traffic signals, stop signs -are going out within die next day or two to and so forth and to cafty on this staggered the State Committees agdjwehave found it hour program and the share-thc-car move desirable to make f^^dgeSl. the- Office of ment In addition to all those things, now I r, ,* * ;`K&is&s (i ftT J 'B iS iT ^ n i* B' rt a f t d r r T t P*?e . o o  l t *6k. f \ I I 18 31st National Safety Congress - organized group? of people. all the facilities, of the 'country with the -ex ception of organic vehicle* which are those You must realize that they are. attached to owned and operated by tiie Anny. the Defense.: Councils, Publicity Bureaus, Speakers Bureaus and so on. Tliey have a The Highway Division of the War Depart- machine for getting volunteers, for messen roent was originally established in March, gers, for typists, and they have Block War 1942; as a part ed tte Transportation Service dens. They actually plan to go from door to of die Services'of Supply. In May, 194% tiie door and encourage this Bung on a person Highway Division was indtaded.as a part of alized basis and so I ask that'these-State tiie newly established Transportation Corps. Committee men But are present Here and . It is one of tiie five Divisions'of tiie Trans many of the Local Committee men who are portation Corps, the others being Rail, Wa also present, to make the fullest use of those ter, Traffic Coirtrol, andTransit Storage; facilities. : all are under tiie. jurisdiction of the Chief, of These OCD people don't want to be trans Transportation. - portation people^ and they realizethat they are not transportation people They want to put their stand-by service at your disposal. The OPA has been ordered, mind you, to extend gasoline rationing which is so doseiy linked with car-sharing throughout the conntry, and it intends to . use these car-sharing arrangements or at least the car-pools, when they are formed... They are hopeful that be tween now and the 22nd af'November or indeed between now and the 9th of November when the registration must take place the maximum' posable number of these car pools will be formed so that those people who have to form a car pool in advance of getting The objective of tbe Highway Divisioa is to. assure the War Department that neces^ sary motor transportation and highway facil ities and seryities are provided fM- Bie move ment of persons and material with'which the War Department is durectfyor mdircctiycoo- cerned. This interest mltiudes tiie movement of war materials by track; the movement of war workers by mass transit and passenger car, and the maintenance of adequate high way facilities to provide for these movements. Thejurisdictionof'this Divisioo; however, does not include the so-called organic motibr transport operations of the Army itself. gasoline rdief mil be able to get ifc ''-s' MR. SORENSON: Thank- yon. Dr. Thompson. I am sure we see, now, the wis dom of tiie government and the War Depart ment in taking the action so early when we recognize the tremendous job which the Highway Traffic Advisory Committee to the War Department Ins before them. The direct interests of the War Depart-;, meat include the 'pnmaod of motor equip ment and highway facilities at Army installa tions, including posts, camps, 'and stations ;_ and likewise; the provision of ideqate com- " merrial motor utaqiort service'at ports of embarkation and debarkation. *, (' - Matters .in. which the War Department is I know we all recognize to a certain degree the tremendous jab, the tremendous problem of moving the materials and the equipment of the armed forces, and the transporting of those millions of men who constitute the armed forces, but I doubt if any of us ricog-j nize the full extent of the problem, so we are very fortunate, in having the man who is charged with that work; Frederick C Hor ner, Chief of the Highway Division, Trans port Corps, Service of Supply,- United States Army, talk to us. indirectly concenied involve, the entire private (:. and commercialmotor transport system dfthe" counby in itsrdationto the movement of wargOods andwar workers,andthe mainte nance of transportation essential to the civil ian economy. In other wairds;. since the oiper.ations of 'the Army; are .dependent upon the fulfillment of war production amtracts, it is necessarily an important concern of the War Department that tiie goods are produced and delivered, and that there is no breakdown in A the essential operations of the whole civilian economy behind tbe war effort MIL FREDERICK C HORNER: Mr. **x , " * * Chairman, Ladies and Gentlemen: The.High These interests of tiie War Department are way Division of the Transportation Corps designated as indirect,. becauSe actually the has the problem, of the movement of war' responsibility foivtransportatioauvestedui material and persons using all the highways. otha- Federal agendesthantbeWarDepart* data tatfc* Offio dgSy to, be cstaV sure'with it is of si convi War Th toot* tatiot field of tr native .tions movii ities! Th rccoc spect dini tshee'ng^ti 'parti ficat* . favor tionii mean ODT way' izatk field. thee tionl totb plant In Divii wfaid mom ports .tuts tied home that part Street and Highway traffic Section 19 menfc chiefly the Office ofDefense Transpor platform that in view of the rubber shortage tation, the War Production Board,' and the and other critical material shortages, we must Office of Price Administration. It is accord plan to. put;our. motor-transport syftaht:on a ingly!the function' of the Highway Division .wartime basis now, in order tiiat wewiH be to, be constaotly infonned as to the. policies assured continued, availabilityof sudiservice established by these. Federal agencies to as- throughout tije;waf for all essential-purposes. sore that actions taken will;be in conformity with War Department objectives. Likewise, MR. SORENSON r. Thank you, Mr. Hor it is Jour duty to recommend theadoption of shelf transportation policies as*we are convinced will further the interests of die War Department ... ,-ner.. . C ' You dty or state men or county men had the Ideation of. a vital war production plant in your-area, .the selection of . which was tieetbed most advisabl^ pdbaps, by; the De- Highway Division Organisation fense PlMt ^jrporab'on br the Army 'and you are bavingtrooble with access to. tiiat - The organization of die Highway Division plant bbthm materialandwar workers. Sev indndcs branches dealing with tbe transpor eral things that yon would bave to do ar*v tation of person^/transportation of.: material, first, t make tbe maximum nse of existing field operations>r^hi^hwaysaiidniovement feiilHift. of traffic over tbe highways.;No dorf)t the movement of persons in trahsportatioa func One of those maximum uses involves traf tions would be of most interest to tins panel, fic engineering. I am going to ask. Grant since these.fanctions-involve.the problem of Mickle what he would do to insure tiie. max moving workers by masstransportation facil imum use.of the existing facilities by traffic ities and tiie private automobile. engineering. . The Highway Division has-been active in . MR. MICKLE: Tdtry tofindout if some- recommending a realistic attitudewithre*. .thiag-nngfat be done in the waypf staggering spec! to the conservation of equipment^ tiie tiie hours'of that-plant as.wdl as^adjacent dtmihation of noo-esaential vdtidettse, and plants so tiiat we might get a lime . more tim-maximnm utilization of existing pas- . aroond-tlie-dock use of tbefarilities that we sengcr car and transit equipment. It Ins have. I think I ought loblcintotbe matter participated in. the'-attempt tobbtaindari- of wbetberitwas in anurban or suburban ficarion-of the rubber rittntiqnand to obtain area. I'd loolcinto the parking :cootrol. to . favorable, action on ,nationwide gasoline ra-r see if we could obtain more famto. for move- tinting had othernecessary conservation ment Td kick into tim'tignal tinting and measures. It has kept in dose touch with the ^ into the preferential streets to see whether ODT, the OPA, the WPB/andtbe High we had/all bf'thethrough arteries that we way Traffic AdviSory Committee totbeWar needed to serve that area. Department : the last-named of these organ- izatkmsaiding ns wherever possible in tiie I'd want to know.something abootwhere fidd. As one ofthemostserious with winch , our people; .were coating from,. what. tiie the country ^ -particidar atten origin <d. ailVcd these workers' at tiiat plant tion has been ahd w21 eootinoe tp be devoted . might be so that we cbtddwork but a route tothe worker transportation problem at war systemwhich would bring than,to their,place plants bolding War Pepartmcnt contracts. of employment with: the greatest ease ahd the greatest safety. . In condatio^ tbe function of the.Highway . . - '/" > ... Divuioa with respect to the problems with MEMBER: We..have a problem- of the which this pend is concerned might be tremendous increase of population due to the summed op by saying that we in the Tnins- ship building program bf the Kiiser organ portationCorpt are determined that meat- ization and other war plants. I would like um.be titan which will assure -the contin to know if there is anydefinhe program, new ued movement of workers between their ideas on tiie staggering of hours and by what hcmjes and ifapes of work. Itis our belief authority a Local Administrator, can work, tbatthiacan and must be done, for tiie most or,: what bis authority is? How bur can. he wiSh existing vettaes; , and it is our go in putting in a staggered hourprogram? 20 31st National Safety Congress The Local Administrator Is told that a conservation program most be done, but he b given no authority and I doubt* frankly, that be has any standing to enforce anything. I'd like to know by what authority, what law, and by how much he will be backed tip? If so, when and how? MR. SORENSON: I think that is one for you, Dr. Thompson. DR. THOMPSON: A very similar ques tion was asked Mr. Richardson, who repre sented die Office of Defense Transportation. You will recall that he said that up until now this staggering-hour program as well as the car-sharing thing and all of the conser vation methods, as a matter of fact, have been on an entirely voluntary basis. The Local Administrators, therefore* have no more au thority atthe present moment than b con veyed upon them by their city authorities when die announcement b made. don't have to pass a law and you can get it done. If you .button it up right b won't un button. I dunk die trouble b dot die fellows are afraid to take their coats Off and'go out and work. 0 MEMBER: In Gary' The United States Steel Company has die Public Relations man representing 35*000 workers on bur commit tee. We also get the help of the C. I.O; and the A. F.of II When we got through the traffic engineers were sent up there and those boys were sold. The local street .car company had been working for. years to get a,,staggering hour program in there. Well, I guess we scared them a litde bit We used everything we could get and nothing was.left undone. We made a litde tune using "Yes, we have no bananas" using "rubber" instead, and before we got through with that they changed die hours for 3,000 workers. There waim't any force, there wasn't any law necessary at all In a deplorably few ^instances, the City Councils have assumed-the attitude that they had the power to convey authority to die Local Administrator and that he could issue necessary orders, but that b certainly gen erally not the case In at least two states apparently the Legislators have given to die Governors and die Governors, in turn, to the Transportation Committee of die States the power to ord^r those kinds of arrangements. Within die last couple of weds Mr. Onion, die Chairman of die Public Utilities Commis sion in New Jersey, under a Governmental proclamation, ordered die staggering of hours, DR. THOMPSON: There an an exceed ingly small number of situathms such as die gentleman from Portland mentioned.-{would say that somewhere in the neighfxxfjodd of 75 to 100 cities in the United Statcsjather with fufl-'w partial staggered hour programs are in operation and I know , rtf perhaps a . half down places in which serious resistance has developed. The picture b not a gloomy one and I don't want to have this-audience . left with die impression that even on the voluntary basb tins thing b an impossible ^ **- . .. of certain groups of people. V_L_'S -MEMBER: I am bom Kansas and. we I cannot help but fed, and this is a per sonal reflection and observation, that as time goes on we will pass from that voluntary phase to the compulsory phase. I cannot bdp but observe that that b already in the process of taking place. We see it' in gasoline and tire rationing regulations and thatb one of have used two methods that.are valuable. _ The first rate b a hundred and forty passenger'J bus in which we save plenty, of space. The second and best step is the bmlding of bar-CL racks where toe worlcers can live and work right there. Thatb the peal answer in our opinion in toe Southwest; _ the things that I hinted at when I said that MRTHORNER: May I ask you what the Local Administrators would have an in type of vehicle that is, that 140 passenger creasingly important task. job? MR. WILLIAMS: I'd like to say bom our experience in Providence* for die gentle men who asked how far you can go* you have got to have a strong pair of legs to travel up and down stairways and you have to go in and cry and pray and dp everything that-you can, and if you do it that way you MEMBER: A single unit bo^t fay the Santa Fe Trailways. One has been working. about'30 days. " We'll have a couple more m a litde while. . . MR. HORNER: You advocate bolding that typeof equipment and building barracks? ME MR think ME They arp b about MB troubl DR street these me ai tact i Wet Come a gre sued our a and Ic Ho as co tee, ii rityt engin periei all it ers d Orlea o. Street and Highway Traffic Section 21 MEMBER: Yes. MR.HORNER: To what extent do yon think yon can build barracks? MEMBERS They are budding diem now. They will accommodate 9,000, the ones they are building now. .They now accommodate about 25001 MR. HORNER: And you are having no trouble getting workers to live in them? MR. SORENSON: Westillfind.thatwe are trying to put a quart into a pint container; We. must have more roads. Dr. Thompson,, how do we ,go about securing additional fa cilities for this situation? DR. THOMPSON: Well, Mr. Sorenson; ray answer will be predicated on the assump tion that everything possible has beendone, and it will be colored by the grave lack of manpower and materials with which to build access roads. MEMBER: They haven't had up till now. I should like, also; to offer a short prelude MR. SORENSON: Any other question? *. to my answer that die Public Roods-Admin istration; Federal, is die agency to which has MEMBER: May I. ask Mr. Thompson been entrusted toe job of administering the whether die Advisory Committee, in order federal funds whichgo into these access roads to secure uniformity of effort and coordina add dm job of passing bn die plans for those tion of effort, has .given, to these Local Ad roads in cooperation with die State Highway. visory Committees authority and uniform in Department structions as to how they shotdd set about their job.' In Louisiana and particularly New Orleans the traffic problem with reference to industrial plants is sad.- Very little has been dime with roads, highways, signal lights and Local people could call the Local Adtninis r trator and his Traffic Committee would make a study of die situation, - possibly with , the help of the State Highway Department. Each r-\ so on,"and from a standpoint of planning, al though we have had some success with stag gering of boursin' the industrial districts. Because our Advisory Committee does not seem to be very active, I was wondering whether an authoritative plan had . beat handed each one of these Advisory Commit tees so that they will work with some degree of uniformity all over die country. State Highway. Department las attached to it what is known as a Highway Planning Survey, ,an organization which is financed but of die federalfunds. They have trained; experienced personnel who^ are-accustomed to making surveys oLtiiejiitaatiau^'Mysug- gestion would be thattheXocal Administrator .or the city should call on the state highway engineers who will in every procedure know what die situation is.' ' . 'Vi 3 DR THOMPSON: WeB, . Mr. Weiss, MR. SORENSON: Mr. Horner, if we suggested material concerning die facilities of cotdd prove h? facts thatwe needed this addi street traffic has been sent to each one of tion to the access roads, would your office aid Qthese State Committees. It is impossible for in die seenring of priorities for materials? - me and my little staff to keep in direct con tact with each one of these administrators. MR. HORNER: Naturally, the Highway O- We have to feed material through die State Division of the Transport Corps will fi^ht at Committees to die Local Administrators and the dpp of the hat.to have the Rnds<main-' ' a great number of State Committees have is tamed and hove access'roads built that are sued their own manuals of instructions with absolutely necessary to die war effort . our concurrence. They are supposed to advise and keep advised these Local Administrators. 0 However, as complete m.tw. cooperation, of OJht AluisC'mD. a |ut,u;fnlgfr a State Commit tee, it seems to me that there should be in a dtjr.the size of New Orleans enough native engineering^talent and. knowledge ..and ex perience to solve your problems there. After all it is New Orleans' problem. If die wbrkr ers don't get to workin,New Orleans, New Orleansis die one that is going to suffer. - MR. SORENSON: Wed, I anticipate; Mr. Homer, diat you tue going to get some real requests. MR. HORNER: They'd better hold water though. MR. SORENSON: I drink that remark is very apropos. The trouble has beet^perhaps; largely onr own fault in die submission of our data to: Washington, whedmr it has been' if . rat .;1:1 a &h' 22 31si National Safety Congress if "> . . , . " in the WPB for priorities or whether it has lent'to tire State Committee, I) bdktopri- beento the State formgterials foraccess marfljr by?tbe |B^ghw^.>;D^rfiEnent.7)in roads and funds. If yobJej) your story odm- . '' P<mn^vuniatheguk^^ pletely, if you submit facts and. figures and 'to come, very lnge^'::froo[;wi)!($mr data that is pertinent to toe request yon are of ConmxTce.InVirg^^ making,' I fed that we will havevery little ing a todrt to [where difficulty in getting priorities. ^ GenerfA^ ^whp; is.',^^CbamBwi;'cd. the State Committee thereand headren tbe I think, also, that many of us perhaps have felt drat we will ask for 100 per cent ani be : Highway [Departto^ from;CKhooe: ^;toej^^^^ satisfied with 50 per cent' I think it'is the wrong idea. I don't think any request ought one: of^thejState: Dcpaitmimts'v.w^ speak for that Department and he called:the to be made to any of the federal agencies, rbfl and said: *T wantone man froin yoti. particularly toe WPB,. unless there is an Can yongive h?"Helcnew;tlxrsitnation. . absolute need for every inch that . we are asking.. _ - : "Wes. That*w31be forthcoming." . MR. WILLIAMS: Mr. Sorenson, I'd like "I want two men from yon."; .4 to refer to this question of staff.; When toe Local Administrator and whatever hdp he *JWdl, I can givetir*emenu" .; ... ,, has has prepared some sort of a plantor stag gered hours or group riding; whathelp cut he expect from toe State. Committee and toe State Highway Department in the way of ' The first thing he knew was toathe had about 2 men whom he cordd nse to prombte this program. staff to help him carry out toss program? These*men travd around and carry out The OPA promised os, a community with group) riding programs, twenty NYA derks to trip. tabulate the material. .We asked if we could have one'Of'the members of toe Highway Plamring^Suntey from toe State tire messages of Aw State Ccarnnittee to the Local Admmistrators-in addition to the tech nical assistancewhich mmaiiy mstanceshas been provided by the StateHighway Departments and theHighway PlarmingSurvejrs. - - to come out with us and get this staggered hour program ahead a little bit. Wdl, they asked for a little more money so. fids man could spend some time with us and I got a letter saying that; "We can't penult that at tbe present time. What are you doing about therest of your program?" MR. 'SORENSON: Supplementing what Dr. Thompson - fas said a&! afafig. the line of my earlier remarks, Itoinkwe havebeen too apt to lock for hdp before wfcbave ex hausted every possibility of oar own sources fortoathrip. Frankly, my answer was, "Keep your money until toe postwar period and you will have it ready for toe next war." 1 don't Eke tomention oar city. bat it is anexampleof what ImmitWelnve always, becn able; to use a certain amonht of WPA labor m the past for sameoftbelargetaf- MR. SORENSON: Dr. Thompson; codd you say anything on the.loan, of- maipower from toe State organization? How' axe they equipped, in most instances? fic vdumechecks' wbhfl^vfe^^^ '. right now;'with tfaisjrhange^ we nt^ia tte:neri^ot^ip|g npontbe : trend and finding out jnst what w happening on our street system. It wasn't'possJMetD DR. THOMPSON: It varies tremen get WPA. any more bot we todgettbeBoy. dously. Some of tire State organizations are Scouts and.in. one day, we had I6(Wot-l<532 flush with rnooty and men and.not rdyiqg Oil entirely upon the Highway Department, bat did a fineJob of. traffic voltime counting. in other state agencies we have been unable to get adequate help to go around and visit MR.WILLIAMS: i'l Xm thinking not so: with these local people; these Local Admin nrach of making)volume connts.v Let's say istrators, and to travdtorougbout the state, we have got those done. The boys: are no promoting. >4 goodvto go into a plant and hdp the plant transportation officer who has beim set up to r*T .In California there are.a number of men do .tins job and who.is mndi better) to. do .. tbejql thetr: Advise thistni ,;'FoFj oftoe: sotnXi alfai letter;,! the vw as'wd doyOt provid Thai " one tit work; money raccffl munity hand,i `tioiaol letter) bardie MR MR Comm eralft rang? DR nuig S area j eral;. states, matchi in'air. it as b wayqj mainte edf Planm Rtc* approp asSN One's share < for to .be>hse Hig$ni -State; fortius senosis Street and Highway Traffic Section tiK'jbb^jprodacmggaug^ i r MR. SORENSON: V^t&at^Hiwe;: thetrarisporfationjob. Maybcthe National the panel and tum the meeting bade to ttie Adyw^^fcominittee;- could ns.: out In ' Chairman. o. tfns-iw&ir.^'.r.::v. 4 s : CHAIRMAN. RUTLAND: Thank yoo; ' :.'Forranpa%.. Flare Mr. Sbremoa, and to yon gentlemen on the provideus wth panel who have interpreted tfaese qoestions that have been presented. rV; cflftm&O^ amoan^but :a- ' lettei^aunesaying.to ' The Chainnanwould like to makethisad- ^'''Wib^'in^V|)e'doae;d^i:'^g^rerai(s. ditioRal comment on thediscusskxi.On these as nrdU'as'fonakesurveysand*S^^ 70a iota,. 'hearer' tbrbughdnF'foe room'und other ' do 3ndv;f>est.':Ko.see*tfaSf adequate-funds are.? related agencies throughout the country falls provided* ' : 4 AV.V - the responsibility of doing tbisjob. It is a tiia^;^woti3d;.bdp.ns over die hurdle. - It is tremendously-inqiqrtairit>jpb.. A great deal' of public edocation Tnust be carried on, utiliz- - ooethmgfor a non to cnoe into workand then to say, "Td like to money to dosotnetbing." Aftera a dty and have some wh3etbey '; . ing tbe focilitks 'of the press, radix-; screen; O .v and recognize himasafriend arocndthecotn- In foe. next several months we shall, see munhy anAtheryrisHa itoff, brt on theotber conditions in this counirytfaai we have never hand, sotnedneclseon fte:outsxfeis nt.ppst-,. seen.bdbre;. Tiresarevwcuiiigo^ We 1 tionofaulhorily ini' cmid;po^ni^f..aad the.. are gqmg; to . see a ^vy load dumped on letter in and dot would Wp ' ra crrer fte mass tran^>ortati<m : : agendes. Already I hardfe^ S..-r-' think foie increase hrearrying capacity, has. . MR- SORENSON: Apy olfey questions? MR. WEISS : Ha* the State Aforisory Committee any specific appropriation of fcd- been snch that hhasreached30 per cent .over the sameperiod of time last yfor.. ... ..... , A?. *, v* r ^ : I; .think.it is the desire d jhe ODT and erdfe^to^onwith'ttiiswbrkofidui- mng? ;;7; 4^ DIL THOMPSON: The Higl^y Plan- other agendes in Washmgfbn tia^. mass traiupbitatioin assume as heavy a . degree qf this knd as it is pqnible for it to .tike.; As we in oor work codtinue to use the facilities nirig Surveys, Mr.'Webs,. of which I spoke, of edncatioad agencies tb get peopie to use arc a part of the Higbway Department.. Fid- mass transportatido, we are going Ip.find/jhe er^ j&..iix^^|^tt..htto1di one .of die. general cbnunent: "Wdl. that is right down state. The prevailing patterois thatit is the street car company's alley." They malce matched by the state. That mooeyisused that. statement;^ pohaps tfairicmg that it is m 'k>ari(^;oi..;ways.j Most people think of ai prqject to;grt nKttq inisiness fOT foie tran$> .H as bong used in the construction of high- por^on comjpany. . . waysinnormal times. It isalsotzscd for tlx: . maintenanixof fo also We hmst reditt tiat in foe .nvorage bos used for the maintetanceof this^Highway: carrym& scated and ;3tmding, socne 60 or 70 Planning Survey. .. people ayerage;ak^^ .rniiber.''tised, on its tires isfive orisix hundred pounds. Oh Recently the .Congress of the United.States the basis/ of. Mr. - Midde's statement this monungthatrthecar cajachy indexis around as'SNA mooey--which was. for access roads. , 4, thcrefore, to carry'; flat same nuniber of One'and; one-half--.per. cent M eachstates people: nngT4 or lS^r I6 private vdude^ share of that 25;imliian:dbilars was set aside would require somewhere around-1300. or for; ithese Highway Planning .Surveys', and; 1W poundsi<d;nd)lw.:; *. ^infidlljr - earmarked sq ; dat ft coold holy : the Interpretii^^shsu^t^ prograuntq HighwayTraffic Advisory Committee of fee . p^qfoo^'tmeam'-a fdUqv g(dng '(fown the State^ 'tothat; therefs;iinq^ stredr and ^ddng; ^;VpassehgffS: who are fortunately, it isn't large and ,we are jiving serioostbought to' :ttjevenlargement of those vducles. ___ _.:rtil)bercon- monies. \v.' .. ' servatioahe ; u wdl tove gone on- to; Tfl . ' 'p\ " " -y 24 31st National Safely Congress ' town or to the industrial plant in his car by himself. We have a tremendous Job^ gentlemen, and your Chairman,would like to throw this chal lenge out to you to . take this job seriously. 1 have enjoyed listening to these discussions and to those who have indicated that they would like to get some state or some national help on this problem of die movement of de fense workers, shoppers and business people to and from their, places of business. This problem is no different from any other com munity problem that .arises! It heeds; group action by die heads of die Chambers of Com merce^ the City Governing Body, local safety leaders and civic groups', of that.kind and H they are assembled together and told the story, this job can be dome just,as easily and as successfully in die local community as any other job dot is done by the Chamber of Commerce in getting a new plant into the town or any other municipal or civic job that presents itself. You now stand adjourned. TUESDAY AFTERNOON SESSION October 27, 1942 JOINT SESSION WITH COMMERCIAL VEHICLE AND TRAFFIC SECTIONS _ Presiding:--Leslie J. Sorenson, City Traffic Eng., City of Chicago v> a peric chief In-1 mental dons' a misuse otir.tra during pect to don wi Seco drivers Army ber 10 lions s lion' lit Safety and the Individual By DR. VERNON Or SCHAEFER Pennsylvania State College, State College, Pa. , Why should we fret about traffic acci dents? Is not our gasoline rationed? Are not. our tires rationed? Is not oar speed limit fixed at a very low rate, if indeed we drive at all? All this' should: reduce acci dents materially. But we yet have a prob lem. First we are confronted by the fact that if there is a reduction of traffic accidents due to the prohibitions enforced by government or obeyed through patriotic duty we are likely to become lax in our program of edu cation. This is likely to have tod results in several directions. The lack of education in safe driving may result in an increase in accidents on the part of those who are privi leged to continue to drive; Furthermore^ we are interested in tfae development of proper safe driving habits and attitudes on the part of those who will be behind toe steering wheel when toe shooting is over. We are facing a situation analogous to toe prohibition of liquors twenty years ago. Whether such a prohibition was good or tod is beside the point Previous to the war, schools, churches, The Anti-Saloon League, the W. C T. U. and many other organiza tions kept up a constant fight to reduce toe use of alcoholic liquors. Wt as a democratic nation believed the time had come, so we prohibited their manufacture^ transportation, and sale. f We had prohibition! Education could stop, and it did stop. One prominent reli gious educator wrote in bis notebook "Thank God it is finished; now I can relax. Drunk enness will be no more." He lived to see the day when bis children andionr children, no longer confronted by- toe prohibitioas, faced a world uneducated in the safe way to deal with the problem of alcoholic.liquor. Some of toe tremendous increase in the ex cessive use of alcoholic liquor may be attributed totoe sadden release -from restric tions. Butvthe/lack of proper education oyer I an secrets driving Safe j part-ol and m sorely the pn We tering habits we say ing up is our sound into tii ter pn I sh specific task. ] tereste tilde f it will that it cnnra ing sal This after a v> Street and Highway Traffic Section 25 a pferiod-of years must be . accredited as the chief factor in die situation. .. In-, like, manner when, enforced governmental regulations and self-imposed restric tions" are removed thereis likely. to be a misuse of antomoiales.. i?3Ve must continue our. training for safe practices eventhe more duringtoereduceddrivingperiod if we ex pect to meet the problem of accident proven-' don when.restrictions are removed of die armed service. The analysis of the jobs most be made by the Army and specifi cations determined ;_/?. A third part oftfafjproblem that confronts us, even if restrictions greatly reduce th^ use of privately, owned automobiles, is fra questionof safetyfor pedestrians,, bicycliefs, and those who ride the-common carriers. This part of the problem is increasing rather than decreasing; Secondly we have the problem of training May I now print out the necessity of edu drivers for the Army. We are building an cating those who do not,-drive. There is a Army of the United States that will num need, for individual 'and group instruction in ber 10 millions of men supported by 70 mil the proper attitudes and safe, practices in lions more in direct service on die produc relation to the great Increase in traffic by tion.lines, farms, and in special service. trains, buses, trolley, and bicycles. The If we have 10 millions of men in the Army - at least one million of them wdl .be driving aj<*PSw "peeps," crash trucks, tanks, amhulances; simply trader and other motor.,ve pedestrian is also very much with ns and as much in. need of education concerning safe practices and proper attitudes: as . he ever has been. - :.L - hicles. As king as we send young then and women into die service we will be sending a certain portion of diem into die service as driversi v In all of these non-driver groups traffic < accidents have increased rather rapidly m e.the past year. There is little reason to believe that they will decrease in view of the I am in no position to divulge military secrets, but you must believe that unsafe driving practices are costly in the Army. fact that more and more people must) de pend on these means for both business and pleasure purposes. ` - , Safe practices; habits, and attitudes ,on the part-of these drivers, would save many lives and muds in the way of very costly and sordy needed material. The seriousness of die problem is well known to many officers. hi the case .of the public transportation and common'carrier traffic the problem is further complicated by the fact that the present facilities are not adequate to meet tiie demands for comfortable travel. ..And h We must provide those who will be en is not. likely that the! companies involved tering the service with a background of good will be permitted to develop the facilities. habits of safe practice before they enter. If * , K* 1 we say let the Army do IT we are thrust Traffic accidents wilTnot decrease greatly ing upon it an almost impossible buk. This because private automobile travel is re is our war. Any training that is basically stricted both-in mileage and in speed. If sound that can be prodded before entering there is a decrease^ this area we'know ; into die service will provide personnel bet already that there has been an increase in 1 ter prepared for further training. other traffic areas. Whether the increase tn the one -will reach the .point of decrease in ... t I' should like to propose to this group , a the other will-beinteresting statistically, but specific task and a- challenge to accept that has no bearing on our problem. Onr task task. Everywhere those who have been in is to reduce accidents wheiyver'tiiey occur. terested ' in driver -training are telling me If safety education in the area of traffic is there is no more use to continue it because onrproblem, tben our problem is not de * f it will not be needed. My- proposition is creasing: It is just taking a 'new direction that it be increased but that it be given a which offers new challenge to find a way to definite emphasis in the direction of train meet the problem. ing safe drivers for the service. ( ' ; Personal human factors have always been This Will require careful coordination, important in any accident situation. If we r after adequate discussion, with the program take tbe inrividual out of-his own automo- vOaOsm,'. f r) 26 31st National Safety Congress bile and force himto ride a buv train,; tram orbicyde or to waSrto and froo wk iire have not removed the greatest, {actor which might contribute to an accident. The tiwans or vehicle of his transportation is cooqarativeJy safe in other case. It is tfreindividnal who is unsafe in Ids practkesj habits, fated to accidents. The individual under>toe stress of itocriiiqtion; be fr^fear, anger, exritement,;hllarifr .or . at^:Jua^; is lfloifly fe act unirisely and ocptise fciinvtf"to danger. '`WhaeT^T.to^;be"'dc^;to ^tiange jthe-iemoticmal'- stififfi^r-,-:1evrt^-yor^rinbdlonal . habits, cftbeiirim*^ `Moi indirit monp monk .hides;' promo accord and attitudes. We have oify .'changed the ; tobdp reduce ^tiie5tirioHs:.;to-?vdticfrt:he is There area of Ids.activities. : .exposed tiiat may. came himtabeawieemo- abode In fact tins'chants..of activities in'itself presents additional difficullx. There are new habits and specific practices to be learned. The safe driver may not be.a safe pedes trian or a safe bos or train rider. Worse yet, the unsafe driver may be even more un tioitaL'.f v-'>' It wotdd be foolish tosay that people ought .not ..to.'beVimddr .tttio^ aodthos more emotional, at a.tiroe like this.., Infect it would , not he normaI;if people did' not respond somariiat ibnosffi present islngd raleii of moi wholel we'e* of war safe: when confronted fry a newcmode of abnormal conditions. People are moreex- The transportation requiring a change of specific dted,- moire anxious, and moire tense 'jailer--' minor habits. With the increase of traffic in the prpwi^ iKiffynffT Jf non-driver area the problem of educate " You-may expect it'.; Lfjjp?? andre-edneatingthe individual is toe expect acddents tpfe to inb crease tiiat to increased. ^ result'of Since toe great majority of all aeddents. are caused chiefly fry failure of individuals, to act properly we lave as oar problem toe control of toe indmdualif we wiih to reduce tidnli: .Our task is Jo relievelthose ten sions rather than o*yl to.take extra- precautions. in. the'safeguarding and education of the sridmduaL DISC accidents. Tins control involves several An important point to. fre considered fry factocsj r"- the pdffie-carriers is tiiat of educating the eri^oyees .to toe. necemNy of dealing coor- Tbe individual must be taught safe prac teoasly with toe .great' number of .excited Witt tices.. Lade of knowledge, of safe practices, and jntimw iwlitMiBlt now usmg.toeir fa- caqall is a contributing factor to toe human failure dtities. The sanie jpomf n#- be --made:jieo that si in accident situations. People must be in public tnlft* .lli<iwr ' Brfiw* tynnnw result^ formed in tiie spedfic safe practices of their rather tiwf'frgease mode of transportation if traffic accidents. , ** T?nfnjjy<tiiwil; Af redacts serious are to be avoided. That information, must rnks and regulations can be rigid without^ , remain be aimed at and pitched to the level of the being-harsh'- mid 'irritating .if tiie indiriduslv 1 import] individual. Nice generalizations^ the pub employee or eiiftw. imifewMnifa hnman na- them* lic at large are usually not absorbed fry the tnre and practices .-qiw. i rian allowed individuals who make upthat large pdbfic. ffictatorial abuse of the already tense iofi- mate a Give an individual appeal and importance to riduaL: : c contmii the information you dispense if you wish to inform the individual concerning safe prac tices. Attitude and morale art very ckueiytielated to eadi other and to safety..Attitude is developed fry calling attention often enough ' Siega tiatofru to be i The indrridnal most be encouraged to re peat spedfic safe acts until they become fixed as habits. The jndiridaa! acta either safely or unsafely chiefly fry habit' It is no more' to the, desired point, to guide,toe interest of the indmdual into achanati whicfawlien properly named or symbolized becomes the attitude of the,individual. No safety promo? and. ess couragt WarD pfens.ai difficult to learn a safe habit than an unsafe one. But it is difficult to change habit after it is formed. Since most of our activities are carried out as habits it is necessary to learn safe habits rather than depend upon quick judgment to avoid aeddents. tion program can well be devdoped without toe proper attitude ion tiie part of the Infr ridoals involved in hs development. The indfrridoal is pftenunsafein hisactioastmless be has devribped )m ^ mindetiness tiiat will cause himto seek out and devdop as habfts the jq^ecific safe prac The against Fe*er, andrkk familial ! aatidem The factor of emotion is voy dosdjy re tices. precauti Street and Highway Traffic Section 27 ns xt t mt *- ' &' je- m-L M* Ice nd far he arited ta- >0 WT ish of wt jatan - ide *fr tif m Hie DO* OOt 18* n BO* *rr out ae-. *. Morale ' is a. group' situation. When the : is'./iiot: out* Of. lhie with die larger national indivbUahi. of a group, subscribetoa cdm* .endeavor le^ we tmfld- Wj^ njorale in a tndai purpose^ beitofhigh orlow level, the {small .group! at the ejq>ense of die morale of morakhf the gfofap/is high. ; Then the atti' Jthe nation. tudta':of'tieihdrviduals m and: cadi bestinterests group ! Time 'doeS not permit us to dis&ss all of accordSng to tZ^.'aieb^pt^'ejaima^ ^aroase.' thefactors relating^ the itidividnal to safety Thef''is;'^ to show ^titaf'tbe and accident prevention. - There is modi that accident,ritteis 'Jfavr In gimps where" morale ; could be 'taild'^ coaeertuiq^- intd%eno^ apti is high and high m the groups where too- - tude, physicalabilily, airf persoralityCin re- . rafc is low..If;:wc. can increase' the degree' latioo to trafScsafety. Each of these is,im- of `morale' by getting'mdnddnals to support : portataandmost 'not be overlooked. "The wholeheartedly the comraonnational purpose total mdiyidtalmtist be betteronderstood If we'cm.reduce accidents,produce materials he'is .'to be -educated in afe practices and of war, and win the struggle for democracy 'adjured to a world which presents a mnlti- thde irf harards to his gaiety. He innsf^he There are smaller groupings in which understood; and-:;cdnqt*& afid adjustedspe- mmor conunoo purposes nagr be developed dhcanytotachhrasm occupa to increase.morale vririchwinin tarn de tion, and traffic according to the cartful crease aefidfents. ~ Ltt us be sure, however, analysis; of* -'tplat ihi^,g. -liaijintc * and that the minor common purpose of our group safe practices ineaebarea. " ll DISCUSSION BY J. S. BAKER, NATIONAL SAFETY COUNCIL, OF. PAPER ON SAFETY AND THE INDIVIDVAL BY VERNON D. SCHAEFER Q ' With Dr. Schaefer's threemisgiviiigs we In. his analysis of the relationship of per-, caq all more,or lea agree. Thefirstof sodality to aeddehts, Dr. Scfaaefer outlines that slackening effort in traffie safety will die three, fields -which. many of usQbave result Croat a decline in acctdents dae to war recognized but often, call fay other names: reduction'in tn^B^ u probaNy the inost serious. It may lead ns to forget tint the ` 1. Thenecessaiyphyskalandtoentalabil- remaining drivers will be those partiodariy ity wtoch Is rightly classed as being basically iritportant to the war effort. Furthennore, the least important of the three, particularly tbemadnneiy of accident prereution may be in die careftdly sdected group of professional allowed to rust, with the result diat theultl- drivers' in cotniniaxial-vdhicle anid transit mate: increase in traffic will-find it oat of fleets. * commission. -- f: 2. The knowledge'and sldll of a driver as Regarding the second, fear: that driver developed .by training and. experience; the ttunsag npy h*.<liTMittiAwtj.' ti knowledge bring not. Only^ an understanding to be directed to preconditioning for. anny of the vdhide driven, but also an appreciation andessential rivilian traflkv wemaybe en* of. die hasvds involved, and the skill being cqoraged .fay,the pershrtent rumors mat the not only die. ability to manipulate the ,con- war Department and school authorities have trols of die vcfakfc almost automatically, but plans afoot.for meeting just this situation. a correspomSog habitual response to traffic shnadon%'btfort- it ictoo late to avoid acci The third wartime traffic trouble is one dents.' against which we can wd! be pit gmi& '* * ` C>: rcw^ .cars tDQUi ixipf^ petKStnttpp QrcustSp 3. .The vagne tiiough vital factor of emo- and riders, a change wfaich will ihtrpduce tm- tkm; this.is soehetimes sptdten. of as. attitude ftaulivvicoafitiato^^ many peoplethat or mcnalcC Imt boils down into a shn^e xnat- apsfcfcnta..are bound to : result nnlessspecial ter of whetherdiiTvershave theddermiiation precautions are . taken. . : to make-tbe utmost use bf thar natural abili- r! . t ". 28 31st National Safety Congress ' ,-- ties and their acquired knowledge and skill. cannot expect much traffic safety until we can develop the rightattitudes strongly. Nice Generalizations Possibly one of the reasons why this is so difficult is that in driving we are^surrounded In developing these points, one thing was by the steel and glass of a car mm we rarely said which deserves the most emphatic un come dose enough to other drivers to sense derscoring : "Nice generalisations are not ab their disapproval of what we are doing. If sorbed by the general public" Most of ns in we crash the line at a ticket window, frowns safety work should take this to heart! We on faces and muttered, disapproval make us are too easily content with preached or pic - pause, but we are rarely aware of such re tured admonitions to be careful, to drive actions when we rush past five or six cars safely, and to keep the vehicle in good me in line; whose impassive exteriors fail to re chanical condition. Such platitudes echo the flect how their drivers hate us. pious sentiments of every driver to whom they are directed, but usually make no change /"A \ ' in his faulty driving practices. Not until we Attitude and Morale break away from these "nice generalizations" and adjust our efforts to educate drivers and This brings us to anothervpoint of Dr. mold their attitudes to the exact situations of Schaefer's which was most helpful: the dis die drivers, can we make them, see that there tinction between attitude and morale. These are in their own. behavior flaws which will days we speak rather glibly of the latter, often result disastrously. It takes work on each without failing to realize that H is a group driver at his own levri of interest and intel affair.. I can have attitude and yon can ligence to bring into focus out of the blur of have attitude; but if these two attitudes agree "nice generalizations" those specific tilings and reinforce each other, then we have which he himself must do for safety. morale. As an individual, I may believe in + ; obeying the speed laws, refrain from driving Perhaps there should have been a little after drinking, and give my whole attention more said on attitude. We all recognize it as to the job while I am behind the.wheel, but a certain fervor which we may call, "safety if my compatriots sneer at tins and call me mindedness," or some other such term with a sissy for it, my attitude is weakened and out modi appreciation of how such a flame our morale is poor. If, however, these same is kindled. Most drivers, and also many of fellows berate me for my poor chiving; com those who are more or less responsible for pliment my good safely record, and I do the good driving of . others, are satisfied if the same for them, my attitude is strength their attitude toward safety is right instead ened, my determinarion to use my skills mid of wrong, without recognizing that the emo abilities to their greatest advantage soars tional outlook toward proper driving must and our morale ishigb. not only be correct; but it must be strong. In general, our feeling toward traffic safety Such is the stuff of which safety Is made. is good but woefully weak. We deplore We talk of safety in the individual and we drunken driving, but not strongly enough to are discussing a most primitive instinct, that, let our drinking interfere with our driving. of survival. Our problem is, of course; one of keeping the physically and mentally unfit In other fields, far less important from drivers from the highways, still more one of the .'standpoint of safety, our feelings are developing in each driver the habits and sidlk ' vastly stronger. For example^ I doubt if for keeping out of accidents, but surely .most there is a man in a thousand who would, if important of all, strengthening in him those I asked him to, step up on the platform in attitudes which spring from the instinct of front of an audience and take off bis trousers, self-preservation to make the utmost use of yet it is easy to find people who will agree his abilities and his skills to avoid bring to drive you home if you will first buy them trapped in any dangerous situation and of a couple of good stiff drinks. In both cases multiplying the attitude of this individual we have the feeling that there is a little by focusing cm it the approval of.others to something undesirable about the situation, but build morale so -essential to the success of tite difference is that our attitude is strong any activity which is so much a group matter in the former case and weak in the latter. We as sharing the highways until others. GROUP SESSIONS OF TRAFFIC COURT JUDGES AND PROSECUTORS WARTIME PROBLEMS OF THE TRAFFIC COURT -v Presiding:--Judge Easie W. Frost, Municipal Court, Kansas City, Mo. Opening Remarks by Judge Frost The two major phases of-"Wartime Prob- die cases of workers who work eontmaoosly ' lems of the Traffic Courts directly result on a daytime shift Traffic cases most be ing from and 'vitally affecting the war effort segregated and tried .promptly and continu 5r. are the special problems imposed by defense ances avoided. The added case load in areas 5s- workers involved in traffic violations aid where war industries are located most be ese those of handling members, of the armed overcome by more efficiency in. court proce ten services in the traffic court. dure and facilities. op an Reconciling apparently opposing factors is 3. Satisfaction of sentences or penalties so ree ive In ing ion Hit me necessary in handling the two major status as to not conflict with work schedule. conditions. Defense workers and members of t * the"armed forces most be kept "on the job." A plan of installment payment of fines is The ideal and practice of fair and impartial 1 probably the best solution of th?< problem traffic law administration and all that has and much more practicable and satisfactory ten accomplished in . the cause of traffic than attempting to have sentences Served safety must at the same, time be preserved over week-ends. ind AH conflict, actual or apparent, between these me two factors should be eliminated to the ' 4. Elimination of unsafe drivers, particu mr fullest possible extent to the end that the larly drivers carrying other passengers for (k all-oat objectives shall be attained. ' hire. th Special problems imposed by defense This problem can be solved by either temud workers involved in traffic violations include: paraiy or permanent suspension or revoca ITS tion of licenses; L Providing appropriate arrest and, book ing Procedure bn avoiding delay to and de 5. Elimination of unsafe transportation de. tention of workers. equipment. we tat Agreements made between management of This problem can be solved by providing me war industries and enforcement officials per for and imposing appropriate fines and penal ifit mit use of tided summonses for spepdtpg ties or by uhpotmding provisions requiring of and, minor violations and elnntnate bond re that equipment be made safe. .' ills DSt ne quirements normally required because of jurisdictional boundaries. This is, of course, primarily a problem of law enforcement 6. Traffic education program for defense workers. of officials. A definite traffic educational program of ing of tal 2. Providing court sessions for trial of workers that do not conflict with work scheAde. should be provided, for .defense workers, as well as for tiie general motoring public. This . necessarily requires a traffic,violators* school and attendance of defense workers daring to This problem requires more and varied their off work periods. Courtroom education of traffic sessions. The'sessions must bestag- of traffic violators.^ and cooperation of the ter gered to meet the different work shifts. management of war industries in educational Night court sessions are imperative to ban- ; programs should not be neglected. * V-b :* ..A c: S'":: ir.. )\ :i .s 4 * r 30 31st National Safety Congress 7.'Proper enforcement attitude as to de fense workers. Should defense' workers be given special. cons^iddieration b' ecame of their work? A sound analysis of the problem would indicate jthat defense workers deserve no special consideration from the courts or po lice but jmust expect to pay the full penalty for traffic violations. duty, or boi fmioqgjii'Snd whether he is bring nulilary equipment brdviliancqmpment, and die practical-distinction between minor and major .traffic violations as well as theexerdse^of comi^ between dyil ^nd ' militaiy authorities in the handling' of traffic' tions. , . 2. The procedure applicable in cases, of conflict ofcivtt and mUitoryjurisdicticm, par ticularly m cases, ofseriaustrafficviolations. Handling members of the armed services in traffip court 1. legal jurisdiction of civil traffic courts over members. of the armed services. Thit^tnvolves a dutmction'betwfeen peace* time arid wartime jurisdiction-smce we are now in the latter status. It further involves possible distinctions arising out of whether die member of die armed forces is on active . This necessitates cooperation between the civil and'-military.. authorities and a. dose contact between the dvil authorities and the Provost Marshal's office or !bther command ing military officers of the particular area so as to facilitate the detentioo und transfer of the violator to die military authorities for appropriate , action and puniriunent in con nection withTbe violation and report bade to the civil authorities to dear the records. JUDGE JOSEPH B. CATANZARO. 0 Municipal Court No. 1, St Lotus, Mo, dis cussed die effects of .agreat influx of con struction and munitions into St.Louis.. In addition to the homing difficulties^ arid Judge Catanzaro, there is a real traffic problem be cause of the fact that many of these workers came from farms, are,unused to tity life, and create an increase in violations of the traffic laws. These are chiefly defense workers who, after long hours of work; soffer. a physical let-down, in consequence of which they stop at taverns for relief from the tension of the day's work. This increases the drunken driving to be handled by the police, and.otheroffenses,sodi as leaving the scene of accident and of re sisting an officer. workers also plead lade of timfe to 'get the required drivers' and state licenses. oFor driving without such licenses there is a max imum fine of $25 plus $3 cost, but common .court practice is to let violators off bn the fine if they wilt procure the license; Another, problem of great importance is the question of careless or reckless diivag charges. St. Louis is attemptmg to put .a curb bn the practice of the viblator's sedang out the owner of the-damaged .car wfrhtbe intent,to settle the matter,out of court- Judgc Catartzarobelievedthat thetdtimate sdution to most.brthese probleins is. obe bf efficient and successful education of; the g$baal'pub lic. Hestated his complete satisfaction with the way that the police are working with the court. The Judge stated-that they have 500 to JUDGE. ENGLER, of Amtiq, limit, 600 cases a day in their two courts. F6F: stated tint there is a population of some3,- die first off^hse for. driving while intoxicated 000,000 in -Minnesota, two-thirds .of whom die fine is $50 and removal of the license .for live in rural , sections. The! sesriOns of the one year. Frequently the defendant pleads rural.courts ire very much more informal necessity of the car in order to get to his war than the sessions of the city courts. There job, and with lawyers on the -case it is fre is a great deal of moving in the stateand quently dismissed. people are impressed with ffie.,ladc of uni formity in eourt procec^^ Another problem is-encountered in the in creasing number of defective cars, where The management of. Minnesota. courts, in the workers plead various excuses for not traffic violations^ does not leave^ in': thedti- having them properly maintained. Defense zens' mindafavorable impression, and .Ibis wiflx.i whole oftrai peaceticein anythi sibilit] .-,i ' In a ler*s:f; brdagl night: defebs isfact* of fine weefcK on tiie driver menti are sti of stn Engiei die pie JUI dsccv state a fic cas arises in cha that tl The latorp adorn courts to any theprr theh'g theligl " Inoth< ioo, to problef locality fabwen agree. First to'ftok wbirkei factso V-.rSi:.VWii ' FH-? S H S f IT JSS F T 3. ,WJV Street , and Highway Traffic Section 31 vriflvundoubtedly have a .bad effect on the . Annyand Navyauthoritics. Tbe Anny has wholnpi^emof production siiid thecontrol drivers' regulationsandare trainingsthe men of: tridBc^Jtesutmeht against justicesofthe best- fitted to drhe. Driversin convoys sd- peacenaturallyrefleets ontraffic courtjus- .. ' dom get into trouble bboausetbey are exed- ticeirigeneral. Thepublic itself is not doing . lently trained Ky the Army. Anhy convoys anything about it; but rather puts tht respon- are-put right throngh the city by previous sibilityori the .Bar. - ' agreement - with - thelocal police, and local tnrificisrerouted. In cases where military In a brief discussion folldwingjudge Eng- : drivers have . no money to pay for- fines in ler's -remarks-."the7; followings points - were, case of violation, they are put on probation. brought ant: (l)Spedal coortsessions at After communicating with the commanding nigfat are.moreeffident in taking care of tbe ; officer the mooty b sent intotheprobatkm defehse worfcera dn' tbeir off-b^ (2) Sat- office on payday. It b necessary and vital isfactkraofpenalties, the installment payment : to have perfect coordination between die offines and the serving ofsentencesiover the . Array " arid .Navy- authorities land- idle local wec&endnAl tend ;tb: keeptbewar worker potiety said Judge Snath. on tbejob. (3) Theclimination of tbe unsafe driver and of unsafe transportation equip JUDGE CHRIS<?6x, Oakland, Calif., ment and of more traffic eduationalprofrains stated that they have great numbers ofser- are atilt problems deserving of a great deal viceraen but that the problem of dealing-with of study. It b generally agreed, raid Judge them is small compared with the problem of' Engier, that the defenseworkermnstpay. dealing with theddaueworlcer. InOakland, the penaltyjustlike anyone else. convoys go through town with' the assistance of local officers. Traffic violations are usually JUDGE HUGH L./SHTTH Sani Fran- handled in` local courts with? the exception dsco* Galifornia, .saidithat soldiers in . his of very serious cases. Military traffic cases, bate are treated like civilians in average traf said the judge, are-no particular problem-- fic cases., More serious traffic cases as they not so ranch as those of the average citizen. arise are taken up with the Lieutenant Colonel The attitude of the boys , toward die court is in charge' of the area. Judge -Smith stated very good. Soldiers are given priority hear that they had excellent cooperation with die ings inall cases. - i'3 g-*S* ?;g.3 E S T B ^ f: K W rW W W R * * * S T S * ,* * . Statesnentby Judge Lawrence DnMara; The statement that die defense worker vio- penalty.and it Ibe^jampjlydearto lator presents a very serious problem to law themthat theysJiotUd expjsct no special-con- enforcement officers ingeneral and traffic, ' sideration in these'nripects. "Tly law makes courts in partienhr VriD/iik*^^ ' no such distinctioa and the courts sbould not to anyone' present. In'attempting to discuss usurp die legislative povyers^and write in theproblem cadi of m wfllbaveto do to in exceptionsthat the law making body didn't the IightSof bis own experience with it, in sanction. Further, the idea, seems to be preva .the.lij^t of.conffidons ra:our respective areas. lent among a great number'of such workers ' In other words, h b impossjbhyininyopin- that thecharacterof their occupation should ion, to generalize very effectively abbot the exempt them from. the necessity bf obeying problem, because it varies so;widdyin each; any Law, and this is certainlynot an idea locality* in ebeh.-; cbtnt: andcindeedin each that, should. -beencouraged by any letting - defense plant There are aJew fundamentals, down hy the Coart ;' . however, upon which I dunk we can .all agree;'; .. ' .. The long time result of such a policy ap plied to tbe millioas of;warworkeirs and the .Firrt;ItsbouM be the policy of the Court coosequent fostering inthem ofadisregard to'taakeno distinction infivor of die defuse for; die - law, might .weft rcstdt in cfiaos; - A wdricer intbeapplication oftbelawto the very.large percentage of tbexn are yxmmg men bets of die case iudybs'die impiosltioh of the upon whom dib duty' of tew observance rests l"; .*1 ';-*'7,^' 'jVr*~?'1``*'.^ ' ,J' ....................' - * * " V*' 32 31st National Safety Congress very lightly at best Then too, yon usually find die defense worker problem concentrated near one particular area where die defense plants are located; but it is usually -very acute and it is simply inviting disaster to temporize, to fail to apply prompt and effective deterants in the form of adequate penalties. Second: In other respects, such as bond requirements, setting of cases and assuring a prompt hearing on die day set; I think every effort should be made to avoid interference with such violators' .work. In minor viola tions, they can be released on acceptance of the ticket and promise to appear, particularly where die plant in winch they work is willing to cooperate with the enforcement officers. Special sessions of Court can frequently be provided at hours which do not conflict with their work hours, and, when they do attend, whether at regular or special sessions their cases can be given preference in call so as to keep them in Court as short a time as pos sible. Third* Every effort should be made to enlist die active cooperation of die employer in efforts to solve the problem. In fact, I believe you have it well on the way toward solution as soon as you have Ins help. With his help a program of traffic education can be carried on in his plant Through him the morale of Us employees can be raised ; the tin bat can be made a symbol, as the uni form of the soldier is a symbbl, which he will not discredit by lawless conduct It Js my experience that the attitude of the' employer largely governs the attitude of the employee. Handling Members oi the Armed Services in Civil Courts By LT. COL. ROY MALCOLMS McKERCHAR 6th Service Command, Army of the U. &, Chicago The mere fact that a man is in the armed services gives him no immunity from prose cution by civil authorities. The wearing of the uniform does not make a soldier or of ficer less amenable to all statutes, either fed eral or state or municipal. This applies to felonies and misdemeanors. When a man becomes a member of die armed services he immediately becomes amenable to both civil and military laws, and in certain instances he may be punished by both die civil and military authorities for die same offense; e.g., he might be punished by' civil authorities for speeding at 75 miles per hour and by military authorities for in jury to government property by driving at an excessive rate of speed with a government vehicle, and be punished by both authorities, and conviction and punishment by one would not be a legal defense to trial and punish ment by the other. Jurisdiction With the foregoing in mind, the next ques: tion logically would seem to he, "Who has prior jurisdiction in case a. member of the armed forces is accused of the violation of a civil law?" In general, it might be said that initial jurisdiction is acquired by the authority mak ing the arrest Thus, if a member, of the armed services is apprehended by civil au thorities outside of a ^military reservation and is accused of the violation oTa civil law, he may, as a matter of right in the civil au thorities, be placed in confinement and tried and fined or imprisoned just as in the case of civilians. However, under certain drcnmstances, this role must'be relaxed and the civil authority must yield to mOitaiy authorities. In time of war, when a member of the armed serv ices is arrested and detained by civil authori ties, the military authorities have the right to demand that the accused be surrendered, if they certify that his retention by civil au thorities is detrimental to the military serv ice. In such cases, the military authorities agree that they will try and punish the ac cused at suditimes as will not be detrimental to the military service. On the other hand, the civil authorities likewise have the right, except in time of war, to demand the surrender for~trial-of any person in service by appropriate demand on the immediate commander of the accused and ti him u tary ; time < terest nntitai ishme thoriti cased aifmw taken interft tary d Ac memb* file tit is left Civi turn b Thu ject fa would view. : roilitai are d< the go and tb; in no i given which process object! tary st Whs arrests a trail If tl reprow name, tion at his so] tion tg latter'' ment i author! bade tt a."bre found A.W.C has on pniral and the commander is required to surrender If the violation is serious, tiie man should him unless he is then under charges by mili be arrested and his commanding officer tary authorities. This rule is relaxed in should be notified by telephone or telegraph. time of war, however, since die national in The latter can then determine 'whether the terest and the efficient functioning of the best interests of the service will be served by to military must fake precedence oyer die pun permitting the soldier to remain and be tried er ishment of military personnel by civil au and punished by the dviT authorities, or I thorities. This does not mean that the ac whether military necessity requires the sol -d cused escapes punishment,-but only that the dier's presence with his organization. Mili th administering of the punishment is under tary authorities, in time of war, have the in taken hf die military and is applied so as to right to demand the surrender of any soldier interfere as little as possible with the mili accused of a violation, if his retention , by i; im v tary duties of theaccused. A civilian may initiate charges against a member of the armed forces, but hemay not file die charges in the military courts. This dvil authorities interferes with his military duties,, but the military authorities must give assurance to the dvil authorities that ade quate punishment , will be administered. er is left to die military authorities. . You may be sure that in such cases pun ishment will be ' given and' therefore the Civil authorities may arrest a deserter and dvil authorities heed have no fear that the turn him over to the military authorities. violation wifl go unpunished. Furthermore, the soldier will, in the meantime; be avail m The Practical View able for military .duty, rather than be idle in jail. Thus far I have been discussing the sub ject from the purely legal viewpoint I now Mea in Convoys would like to present the practical point of ial k- view. After all, every, man, both civilian ami The foregoing prindples pertain to indi : military, and especially the men here today, vidual soldiers, while acting independently. he are determined that military necessity and When the soldier is a part of a trade convoy, i* on the good of the service shall be paramount, a different situation exists. All military per*-, and that naked legal rights, though they shall sonnel, when driving outside of military res w, l*K ied in no instance be lost to the individual, must ervations, are subject to all traffic laws, rates give way to the practical type of. treatment and regulations, just the same as dvilians, which will minimize red tape and legal except in cases of military necessity.... When . use processes and contribute most to the greater a soldier is driving a. vehicle as part of a abjective; namely, the efficiency of the mili military column or convoy he isx under the tary service; - direction of the column or convoy com bis mander and therefore is subject to his com ity me What should a police officer do when he mands and directions.* If therefore hfs com arrests a member of the armed forces for mander,'directing tiie column, orders him to rv- a traffic violation? proceed faster than tiie local law permits or in ti* ed, If the violation is a minor 'one, he should reprove the man and then take down his to make1 a prohibited left1 turn, the commander is the one"subject to arrest and not tiie soldier,1'so long as he is obeying an ap ._ m- name, army serial number and his organiza parently legal order. 0 rvies acital tion and direct him to' report to camp, and his superior officer should report the viola tion the man's commanding officer. The latter'will then see that appropriate punish ment is administered. This relieves the civil . The War Department has adopted a pol icy to be followed in tiie best interests .ofthe service, whichin brief is as follows: Tt is generally desirable to arrange with/'"'' ties of of authorities of the burden and gets the man bade to his organization. It gives the soldier a "break," for if he is arrested, tried and found guilty and is committed, he will be local authorities of cities-near posts, camps' or stations to have Military. Police on duly in aril communities. Their prindpal duties , are: ------ ind AW.O.L. if lie over-stays his pass, if-he . V " sed has one; or if he does hbt return to his or a. To assist tiie dvil police in maintaining ganization in time. order among military personnel by enforcing M' Zf'-\?, I re*-- . v...p'- V\4V fei.l 34 31st National Safety Congress. observance of civil laws by military per sonnel. b. Military; police patrol areas with die civil police; particularly when difficulties with civilians may arise. Headquarters of Military Police are usually established in the local police headquarters. c. By agreement with civil authorities, all military personnel arrested for minor viola tions are turned over promptly to military police, with the understanding that correc tive action is to be taken by the military authorities. ' d. To apprehend deserters and other, un authorized absentees. e. To take into custody military personnel appearing in public in a drunken or other wise discreditable condition. - f. To assist civil police in traffic control when troop movements are in progress by controlling military traffic. Wartime Problems o! the Traffic Court By JUDGE E; BASLE RIVES Municipal-County Court, Greensboro, N. C. r- the Uri and- tit jurisdic States court p turner, courts person mitied [/the Sta cemed which Court; .Article over \ jurisdic it is coi not re state ai to thest service With your permission, I shall raise and It will be noticed that there Is no dedica attempt to answer two questions dealing tion in any of the Artides mentioned that with the general problem of handling men 'The State Courts shall be without jurisdiction in the'armed- services in the criminal court. to try persons in military service^chber in * First: Offenses committed by persons in the Armed Services of the United States-- jurisdiction of State courts. time of peace or war. Axtide 93 authorizes courts-martial to punish persons who commit certain offenses, but it does not deny -tins ' power to the State Courts. Artide 92 states Second: Delivery of persons in military that persons subject to military law who com service to civil authorities.I mit murder or rape within the geographical limits of a state shall not'be tried bya court- I should like to call to your attention the martial in time of'peace. Although a court- provisions of the Articles of War relating to martial would have jurisdiction over these criminal offenses committed by persons in offenders in. time of war, it is not expressly military service. Artide_74, Codified'as 10 provided and it does not follow that the U. S. C A, Section 1546;-provides that "ex State Courts would be ousted of jurisdiction. cept in time of war" commanding officers Artide 74 does not make it mandatoty in time shall turn over to the civil authorities for of war as in time-of peace that.persoos in trial any person subject to military law who military service beereleased to the civil auth is accused of an offense committed within orities to be tried for offenses committed the geographical limits of a state. Article 92, within the geographical limits of a state, but 10 U. S. C. A, Section 1564, provides that it does not forbid the release of such persons any person subject to military taw who com to the civil ^authorities or forbid the civil mits murder or rape shall suffer death or life courts to proceed to trial in. time of war imprisonment as a coart-martial may direct, when custody of such persons has been but that no person shall be tried by a court- acquired. . martial for murder or rape committed within the geographical limits of a state "in time In CALDWELL . PARKER, 252 U. S, of peace." Under Article 93,10 U. S. C. A, 376; 64 L. EtL,621, a defendant had been Section 1565, any^ person subject to military tried and convicted in a State Court in Ala law who commits manslaughter, mayhem, bama for the murder of civilian. He asked arson, burglary, housebreaking, robbery, lar to be disdiarged on writ of habeas!, corpus ceny, embezzlement, perjury, forgery, sodomy, in a federal district court on-the grounds that arid certain assaults "stall be punished as a he was a soldier in the United States Army, court-martial may direct" that the alleged offense was committed while In S' 185 Ky. Court i jurisdic ice for . offense impose -\Unde iJalriyc don ov* feuseso its o^Jth even in ' With wit; del lacciiscd pArtid require sons in i for trial impossit I the arm without orities. 1 [the mili [right to I service! |having c ling juri fanoffem I to,surra military "'... ;' ' '" ^ :' >"/ ' '~:l;'C ' V Street and Highway Traffic Section 35 |he United States was at war with Germany, KING, 246 Fed. 868, (E. D. Ky.), it was and- that die military courts had exclusive held that a person in military service would \ jurisdiction over such offenses. The United be'ordered delivered to the military author States Supreme Court held that the district ities on writ of habeas corpus when, in time court properly refused to discharge die peti of war, be 'was held by a 151316 Court on a tioner, as the State Court and die military charge of murder and the State Court refused courts had concurrent jurisdiction to try a to release him, bnjreqnest; to the military person in the armed forces for murder com authorities.. The existdice of this paramount mitted within the territorial jurisdiction of right of-custody in favor of the military tf ;the State, in time of war. This case is con authorities, which was recognized by the .dis y cerned only with a conviction for murder, trict court in EX PARTE KING, has not which is covered by Article 92, in a State been determined by the United States Su Court; but; in the course of the opinion both preme Court In CALDWELL v. PARKER, . Article 93, which enumerates other crimes ' supra, that Court refrained from deciding tile over which courts-martial may exercise question, stating at 64 L. EdL, page 627. jurisdiction, and Article 74, are discussed, and it is concluded that a declaration of war does not result in the complete destruction of state authority in time of war with respect to these offenses where persons-in military "As there was no. demand by the military authorities for the surrender of the accused, what, would have been the effect of such a demand, if made; is not before us/* service are involved., - >. V ' The question ed delivery of a person in the at m to es at In STEWART v. COMMONWEALTH, 185 Ky,, 34, 213 S. W. 185, a State Supreme Court concluded that the State Courts had jurisdiction to try a person in military serv ice for robbery committed in time of war, an offense for which a court-martial may also military service to dvil authorities is par tially covered by a copy of theprocedure re quired by toe Judge Advocate of toe 78th Division, now stationed in North Carolina. This copy, presented to, our Attorney Gen eral, reads as follows:'' is impose pmrishment under Article 93. "Ex Parte Bright 2, Ufa 145, COLEMAN ts a- al ttse ly ~\Under the authorities discussed, it seems Jsnrly dear that State Courts have jurisdic tion over the subject matter of criminal of- vs. TENNESSEE 97 US 509, Corpus JurisArmy and Navy, Sec. 235, Corpus Juris Secundum, Section 38. j fenses.committed within the geographical lim- - "2. If in a case where in application of - its otbe State by persons in military service A. W. 74 for delivery (of a military person) even in time of war. to toe, civil authorities is authorized, good be n. lie . With reference to the second question, towit; delivery of persons in military service dfrpgivi! authorities--when such a person is reason exists for the use of Military Juris- diction, charges should be promptly preferred. (M. C. M. 1928, Par. }l of A. W. 74). in hed <ut ns lil ar en -nx^ed of committing a crime: } s"ArtH& 74 of .the Articles of War does not. require that military authorities release per sons In military service to the dvil authorities for trial hi time of war. Therefore, it may be impossible to obtain custody of a person in tin armed forces who is accused of crime "3. It is the policy of toe War Department, under the Z$th A. Wn to dedine in time of war to turn over to the dvil authorities one who Is subject to Military Jurisdiction and charged-with a civil offense; except when the offense is a most serious one.such as a felony recognized as an offense which would/gecvttv to disqualify the offender for militaryscrricfe' without die cooperation of the military auth and association with upright and'honorable . orities. Furthermore, it has been thought that men, and when toe commanding ofikerTie^ the military authorities. have a paramount lieves that the available evidence is snffident la- right to tiie custody of a'person in military to. establish a primaiarie case. service in.time of war and that a State Court, *d having custody over him and admittedly hav "There will be required with each applica ns ing jurisdiction over the subject matter of tion by the dvil authorities for the stutender at an offense committed by him, may he required of a member of toe military service a state v ^surrender him upon request by the. proper ment of toe offense; preferably in toe form iie military authorities. Thus, in EX PARTE of a copy of the charge or indictment and a I; .>iii ,!A M; m' 36 31st National Safety Congress summary of the evidence relied upon to sustain the charge. "Whenever an application accompanied by the data required by paragraph 2 is made by the civil authorities for the surrender of a- member of the military forces, the com* manding officer exercising immediate general court martial jurisdiction over the accused will dispose of the matter in accordance with the policy outlined in paragraph 1. In any case in which the commanding officer is in doubt regarding the action which should be taken, a report will be at once transmitted to the War Department so as to enable it to determine the matter. (A. G. 014, 12 (12-22* 41.) Cir. No. 2, January 2,1941) "4. The Commanding General of the 78th Division has announced that each individual case will be judged on its merits in coopera* tion with the civil authorities. A member of the'78th Division who is charged with a felony may or ..may not be tried by the civil authorities, depending upon the decision in each case." I hope that this very inadequate and hur ried statement relative to the two questions raised will be'of some help to those' of you here who are faced with the practical- prob lems involved in handling men in the armed forces who have committed crimes off of military reservations. There is very definitely a need for doser coordination between the judges and solicitors of criminal courts and officers in die Judge Advocate General's De partment WEDNESDAY MORNING SESSION ^ October 28, 1942 GROUP SESSION FOR TRAFFIC ENGINEERS Presiding:--Prof. Roger L. Morrison, Department of Highway Engineering and Highway Transport, University of Michigan, Ann Arbor, Mich. Emergency Traffic Control Problems By W. H. KLAPPROTH City Traffic Eng, Dallas, Texas America's entry into the present. world conflict may well mark .the beginning of a new era in our way of life. Since World War I, we have built in this country a mo torized economy that is without parallel in any other part of the globe. Our present era of transportation, which began in 1919 with only 7J million, vehicles, has been accelerated to such an extent that 34 million vehides now shuttle back and forth between the forks of the creek and the tity, between home and business, church, school or/orner drugstore. Nearly one-half of our driving is associated with business and more than half of our population is entirely dependent on die automobile for transportation. Along with this devdopment came the necessity for traffic control to serve definite peacetime needs. 0 5 Then came the Japs. In a few short weeks more than 90 per cent of our rubber stqtply was in enemy hands. Synthetic rubber is still bouncing around in the balls of Con gress. Transportation and the "tods" for, traffic-coqtrd are in a critkal state.. Hur dlingibe.involved processes to obtain needed "tools" for necessary .transportation control is only one of many emergency control prob lems. The term "emergency traffic controF has taken on an enlarged meaning. What, we are really concerned with now is "emer gency transportation controL" Techniques of wartime transportation control are- not new. ; vlewi the'fa preset exped Ou and i Little meats shod useful traffic as ws access co?|sr it bee tary < The i produ critic by tn Em impor are-m aimed rials < Tra pheno lie S . to <bo have i ply o every , Reg have i into ti in-thebefudd posalx winnit If the difiere now. . That's know- Too contim scale i if prr mainta .in ser and p t6 --VI. . t>* .eV ?. . s.s-s.a.^2 8 ,, Street and Highway Traffic Section 37 new. We have merely added an emergency Mass transportation is available in approxi- c : viewpoint and amore exacting evaluation of mately 1,150 cities, but about 875 of these the^ immediate need of applications fojr self- are served only by buses which require rub preservation to conserve our mobility and to ber to operate Public transit cannot carry expedite war production. o Our streets and highways were designed the entire load, if private transportation fails. The backlog to counteract the diminishing supply of private transportation is in. the and constructed to serve peacetime needs, hands of American drivers. It must be: safe r* little thought was given to military require ments. Many bridges are bottlenecks and guarsd'ed to ,th"e-best of our ability. shoulders are,frequently too narrow to be, The scarcity of. rubber: already has re useful for moving or storing emergency moved thousands of vehicles from the streets traffic. Natural cover was considered merely and highways. Whereas vehicular traffic as wayside scenery and convenient points of has' decreased from 20 to 25 .per .cent, the access to such locations are limited. Natural number of transit riders has' increased as cover is of greater importance now, should much as 40 per cent or more in some cities. it become necessary quickly to disperse mili The percentage increases are usually less in tary or civilian traffic in event of an attack. larger cities, where from 60 to 85 per cent The problem of traffic dispersal along war use public transportation, than in smaller production routes and on thoroughfares in (hies, where only 20 to 40 per cent ride critical areas is in need of immediate study ' street cars and buse by traffic authorities. __________ *5 ,> Emergency transportation control is more r ` Staggered Hours important in cities than in rural areas. Cities are natural target areas for enemy bombings It took a war to break an old established aimed to destroy war industries and mate custom which choked traffic: arteries and rials concentrated in such locations. transit vehicles each morning and evening. The staggering of business hours is not a Transportation conservation is a war-bom new method' to relieve congestion, , but we phenomena that is new to die American pub had to lose our rubber supply and practi lic. Never before have we' been called upon cally move about on our "uppers" before \. to Conserve travel. For twenty years we- the plan was sold on a nation-wide scale , to } have taken for granted a never-ending sup conserve public and private transportation ply of transportation sufficient to satisfy facilities and to use them to the best advan every peacetime need and whim. tage. The development of a staggered hour t plan is essentially a transportation control _ Regulations and conservation programs problem in which the traffic engineer can have comethick and fast since our entry play an important part into the war. Frankly, however, the uman- in-the-street" and Mrs. Housewife are still Dallas is primarily a commercial and dis befuddled by die flood of conservation pror tribution center. Our relatively few indus :rposals. They ask, "How caul contribute to , tries' are remote from the business district winning theJwar by merely saving my tires? and major;, war plants are located several If did'government needs diem--well, tfaafs miles beyond the city limits. Conditions were different I'll be glad to give them up right such that the inter-industry type of stag now. Just what am I saving my tires for?" . gering was best stated to control transpor That's , what Mr. and Mrs. America' want to tation to and from the central business dis know--whatior ? trict Too few people realize that we cannot continue our war production .on the required scale and maintain essential civilian services if private^ transportation fails. We must maintam approximately 20 million vehicles in service to keep our war program going and provide for essential civilian needs. The total number of passengers carried on the transit system has increased from, about to more than 7JA million per month since January, 1941. The per cent of increase this year compared with the same period last year is now approaching 40 per cent r O o __B ; *v______'__________g._._____________* ? # * * .. & B 1? R 'W f c C. i ,- iiiiii :o " ' ' 38 31st National Safety Congress A limited program of staggered hours has terested in lighting as a means of conserv been in operation since February 9, 1942. ing life and property moving on streets and This program involved only die schools and highways at night Standards have . been large retail establishments which advanced adopted which correlate lighting with physi their opening hoars from 8:30 to 9.-00 a.m. cal conditions and traffic. Now we are con and 9:00 to '9:30 a.m., respectively. ,Tbe fronted with die possibility of blackouts and' initial program: was expanded on July 6, air raids during which there must be no 1942, when staggered business hours were light, or at most only "standard-starlight" applied to major badness and industrial illumination having an intensity of not more groups operating in die central business dis than 0.0004 foot candles. 8;Q0- trict Representatives from each company in a particular group met with the Defense It may seem strange to discuss blackout Transportation Technical Committee on suc > preparation and adequate lighting in the cessive days and all agreements were con ' same breath. Never in our history has., there cluded within a week after the expanded been a greater need for adequate street and plan was first proposetFat'a dinner attended highway lighting to speed war production by 100 or the cfry'si^rivifc and business and to conserve manpower and manhours leaders. J than now. There will be hundreds of hours of darkness that will be bomb-free and safe 8:158:308:45- -9:00'9:15-! 9:309:45- Tot* The expanded' staggered hour program was designed.' on die baas of a transporta tion survey made by die Dallas Railway & Terminal Company. Cordon counts of auto mobile and transit passengers indicated that approximately 415,000 persons entered and left die central business district daily be- for illumination for every hour we need to hide under die darkness of a blackout. . The London Daily Express in an, editorial has this to say about a continued.blackout: "We ask for better light and commonsense use of it in the face of an air-raid dan Tb 4:004:154:304:45-1 ^tween the hours of 6:00 am and 7:00 pun. ger ... die negative Blackness has been 5.00-1 Sixty-five per cent traveled in automobiles tried and it has faffed. Let ns consider using and 35 per cent were transported by street the positive weapon of light Lights out if cars and bases. Automobile loading was the wanting goes, hot not before, should be 5:15-1 5:30-1 5:454 found to be 1.6 passengers per vehicle, the policy" 6:004 t whereas street cars and bases averaged 27 persons'per unit The volume of vehicular The editorial, goes on to state that the traffic was found to be about 20 per cent less continuous blackout was bad for morale ami 6:154 6:3<H 6:45-3 than that observed in 1941. curtailed war production; that blackouts had not saved cities and factories from bombs Totai Questionnaires returned by 60,000 persons and had delayed transportation of workers employed in the central business district in and materials. dicated that approximately 80 per cent of these arrived by private- or public means during three 15-minute periods beginning at 8."00, 8:30, and 9:00 am. Only 7 per cent of die workers arrived during the 15-ntinute. periods beginning at 8:15 and 8:45 am. The problem, therefore, was to revise starting, and stopping time to level off die peak Some cities have adopted a misconceived notion that wartime conditions make it nec essary to operate street lights at reduced voltage or to eliminate half of the lights. The U. S. Army Engineer Board in -Its specification for blackout street lighting spe cifically states that' tion <1 to am greate tires a and c done ; howev periods and increase travel during periods "Normal street lighting will prevail 'ex of low volume. cept where blackouts are ordered`hy proper nanpc crashe Checks made of passengers utilizing mass transportation facilities before and after the staggered hour program went into effect in dicate tiie results shown on the next page. military authorities. Any curtailment, of present street fllmmnation at other times is not "recommended. Reduction in'lamp cur rent, size or number of street lamps simply results in added traffic hazard, without any and in war i on the is the raateri significant decrease in case of;<ietectioii and ship. Lighting identification from die air." Daring recent years we have become in- Because of round-the-clock war produc- Wif lighten u'O*. . * Ai ii'X'. Street and Highway Traffic Section 39 . Before Staggered Hoars Tine ' 7 KW-7;1S a.m. 7:15-7:30 7:30-7:45 7:45-6:00 Number of Moni PlWCBgtli 1506 3046 4530 4734 8;00-8:15a4it. 8:15-8:30 8:30-8:45 8:45-9.-00 4029 4353 2879 2269 -9:00-9:15 ami. '9:15-9:30 9:30-9:45 . 9:45-10 .-00 1127 1092 1023 1025 Total----------- _____ 31,613 ' Tfane * 4:00-4:15 pm. 4:15-4:30 4:30-4:45 4:45-5 Number of vBIpm11IQ PlUfHIcri 1849 2120 2835 3461 5:00-5:15pjn. 5:15-5 JO . 5:30-5:45 5:45-6:00 4354 4177 3508 3038 6:00-6:15 pm. 6:15-6:30 6:30-6:45 6:45-7:00 2745 1853 1342 1407 Total------------ ------- 32,689 %of Total 45 9.6 142 15.0 125 135 9.0 72 3.6 3S 32 32 ^ 100.0 %of Total 52 62 87 10.6 137 127 10J8 92 04 57 ' 4.1 42 100.0 After'Staggered Honrs Number of Inbound Passengers %ot Total 2386 3507 ' 5016 4823 62 9.1 13.0 12.5 4804 4928 3657 2950 12.4 127 9.5 7.6 1854 1708 1586 1437 45 4.4 41 37 38,656 Number of tmcofcfi (+222%) %of : Total 2013 2363 2613 3325 5.4 r 6.1 -72 95 4138 4740 4533 4270 115 123 12.0 92 3993 3212 2626 2149 +9.1' 72 4j6 4.4 39,975 (+222%) Adjusted % '":+ _ ' 28.6 -- * <' 5.5 92 165 * 25 7.6 5.1 65 332 262 282 162 - Adjusted % ' +. -- 117 9.1 157 ` 21.6 , 21.6 &6 45 145 185 409 602 25.0 -' * Data for months of January 1942 and September 1942.'' don there are many more workers traveling troland warning signs may become entirely to and from war plants at night. Fatigue is*- ineffective unless illuminatedor rcflectorized. greater. ,Automotive equipment is older and In many cases it may be feasible to relocate toes are poorer. Vehicles are loaded heavier signs and erect . them at lower mounting ' and carry more passengers. little can be heights. Signs also have added importance done about these conditions now. .We can, during tins emergency to expedite and pro however, do much to prevent the loss of tect essential war production traffic and to manpower and manhours through traffic separate such travel from other civilian traf crashes by maintaining our present lighting fic It may befeasible to. designate war pro and improving the same wherever it will aid duction routes as through-routes fully pro- war production,. Hie link between victory tected by stop signs on all cross streets. " on die battlefield and production for victory "No Parking" or "No Stopping" signs may is the street or highway over which war be required to eliminate parking at alL times - materials most move to plant, railroad, or along pch routes" or only during specified . dap. hours when changes, in shifts are taking place. Electrically illuminated signs should With greatly reduced vehicle and street be operated in a manner to conform with lighting during a blackout, established con blackout regulations. 40 31st National Safety Congress Pavement and obstruction marking is of switch signals to low voltage operation at much greater importance undo- blackout tiie sounding of tile alarm. conditions to guide and warn vehicular and pedestrian traffic. Center and lane lines not only guide traffic but also facilitate move ment as they aid in maintaining the maxi mum lines, of moving traffic. Crosswalk and wide stop-limit lines; painted at least 5 feet in advance of . the walk area on the ride of vehicular approach, are required at all loca tions where there is heavy pedestrian travel. Turn lanes should be marked and indicated by a special message printed on the pave ment Other appurtenances adjacent to the traveled portion of the roadway, such as signal posts, fire plugs, and curbs, which in tersect crosswalks or are located within the area of off-set intersections and around re turns at corners should be marked accord ing to adopted emergency standards. Raised center islands, medial curbs and loading plat forms need to be especially well marked and perhaps provided with auxiliary reflecting Dallas is about one hour by air from the Gulf of Mexico and two hours flying time from tiie Mexican border. At present; we do not believe that our city will be bombed or subjected to prolonged blackouts. Never theless, we are proceeding with preparations . for emergency operation of traffic signals. . After a survey of our control systems, we have decided, in the event of a blackout or raid, to shut off signals in tiie central .busi ness district from a remote source where maintenance personnel is on duty at all times. Signals at school and industrial crossings can easily be shut off during periods of darknesST'rThc remaining isolated or intercon nected signals in outlying areas will be oper ated at^educed voltage, shot off fay air raid wardens,, or . automatic switches as may be determined by conditions at cadi location. signs. Now is. the tune to "clean house" and help traffic movement by removing unwarranted Traffic Signals signals. Traffic may have changed and per haps the "city father" who wasinstrumental.. * Perhaps one of the most difficult emer in' having certain installations made, is no gency problems pertains to the control and longer in office.- In Dallas we are removing 1 operation of traffic signals. There are sev unwarranted installations as rapidly as prep eral factors, such as the geographic location arations are completed for rdnstaUation at of the city and existing control .facilities, other warranted locations. (_} that may govern the adoption of a plan for emergency operation. Signals may be drat . It may be of interest to mention that we off; provided with masks or louvres, resistors are now making a detailed survey of our may be installed, orfthey may be operated at entire cable system to obtain an accurate reduced voltage by means of a transformer record of existing installations, plan inter installed in the negative side of the light connections and circuit revisions for war circuit emergency purposes, andprovide for tiie in Requirements for emergency signal con trol', will vary in every city. Emergency control may be complicated in large cities terconnection of air raid warping devices in tiie central business district by utilizing spare cable facilities. that have many signals in operation, only a Traffic counts and studies of traffic delays part of which 'may be interconnected and induced by signals are advisable at tins time have remote control facilities. For instance, to adjust tiie' timing of signals for present in Los Angeles, where they have 1,000 sig traffic requirements and reduce' delays by nalized intersections, 2,000 pieces of flashing improper timing relationships between suc equipment and 300 sodium luminaires they cessive intersections. have provided hoods and masks for most of the equipment and have interconnected about. War places an emergency stamp on tiie 150 signals in the central district with die use of public thoroughfares and upon estab air raid alarm circuit In San Francisco, lished traffic regulations. Under raid condi 90 per cent of the signals are controlled from tions a priority of movement is established a central source. In Seattle a system of ' winch requires that vehicles of tiie armed master control cables has been installed to forces shall have precedence oyer all other various bridges where bridge-tenders may .... traffic along selected military routes. Routes must such: official public These ment pass, be se traffic war o In of wai These having traffic one-w routes evacm for. n while tors i meet : in qu gency Trans of the Corps 'Trans ginecs The an inc tation war t Tra Mai arise 1 taken from tary j exped Traffi resulti must tion c ordina mover .... .fr. Street and Highway Traffic Section 41 most also be selected for emergency traffic or possibly only for short intervals spaced such as ambulances, fire, and police vehicles, weeks or months apart Bides for die pres official Civilian Defense Ctnps traffic and ervation and safety of traffic during a'bladc- public utility cars- on emergency' service. out or raid have been , prescribed by the' These routes most provide for direct move Office of Civilian Defense. These/too, hold ment to all sectors within the area. By some promise for-.better transportation con pass, detour or alternate routes should also trol in times to come,.,for. compliance with be selected and marked to guide civilian such rales and regulations may bring about . traffic wherever segregated from essential improved traffic signs and marking stand war or emergency traffic; ards. The signal system may be improved <, In order to provide for all eventualities of waxv-evacuatkm routes need to be selected. These routes usually should be main arteries having a capacity to carry large volumes of traffic with dispatch. Perhaps an emergency one-way movement may be required for such routes1' to increase, capacity and .expedite to'the extent of interconnections provided and unwarranted installations removed dur ing blackout preparation. "Standard starlight" illumination may serve to emphasize the importance of adequate street lighting to be provided with every important traffic facility in days to come; . evacuation. The planning of various systems The program sponsored by the Office of j for. movement should be undertaken now Defense Transportation toadies practically while there .Is yet time to consider all fac every phase of oar mobility; To the layman . tors involved, ihdudmg sudden changes to it means walk more often, share the ride, meet possible empcgSigii^- that may happen and,.use public transit facilities whenever ( in quick succesninFdunqg a'raid. Emer- they will serve your purpose. For transit I gency traffic plamringjifl^ Er^duty of the and. traffic officials it means a redistribution Transportation Office' assigned to. the staff of transportation loads through staggered [ of the Commander of the Civilian Defense business hours and the reduction of trass-, Corps.. Who is better qualified to act as portation wastes produced by congestion and' , , TramportatioafOfficer than the Traffic En unwarranted or improper control. Itpro- gineer? vides the means for a more efficient use of transit and street facilities. The way is open"r";>, The war has given us an opportunity and for the return of transportation control tola 2 ] an incentive to solve many of our transpor strictly engineering basis motivated by engi- ~ \ ts tathm problems NOW. Exigencies of the neering analyses rather than according to the . / war may require us to blackout frequently whims and fancies of selfish interests. r Emergency Traffic Control Problems By DONADD S. BERRY Traffic Engineer, Evacuation and Transportation Section, U. S. Office of Civilian Defense, Washington, D. C. Many emergency traffic control problems arise from enemy action or from precautions taken to avoid or minimize damage resulting from enemy action. The movement of nrilitary and other emergency vehides must be expedited during periods of air raid alarm. Traffic most be rerouted because of damage resulting from bombings or sabotage;' Panic most be prevented. At times of the evacua tion of civilians, traffic contra! and the co ordination betwera rivilian and military motor movements are military necessities. Since these problems may involve several jurisdictions at one time; coordination between state, county, arid local jurisdictions is essen tial in preparing and .executing emergency traffic control plans. Facilities are desirable at state and metropolitan levels for coordin ating traffic control throughout each state so as to accomplish the following: - ll Elimination of overlapping in assigning personnel for stopping traffic at the bounda ries of those districts under air raid alarm. T 42 31st National Safety Congress 2. Coordination in selecting and controlling also the state liaison officer of die H. T. A C emergency routes between jurisdictions, to program for coordination of civilian and mili facilitate mutual aid by fire, police, medical tary motor movements. The state traffic en and other civilian defense services. gineer b appointed as traffic imcpneer officer 3. Provirion of central clearing bouses for road damage information, to facilitate road repair and rerouting. and the maintenance engineer of die state highway department b appointed as highway repair officer, both to work with die state traffic control officer tinder die direction of 4. Coordination of traffic control personnel die emergency traffic control mb-committee of many jurisdictions in the proper selection in die development of die program. of new routes because of road damage or be cause a road has been resaved for the mili tary authorities. 3. A traffic, control operations room b set up in state police headquarters^ adjacent to die commtmicadbns room. Tins room b 5. Facilitation of the movements of vehicles containing military personnel and supplies. 6. Control and guidance of civilian evacua tions, avoiding conflict between such move ments and military motor movements. equipped with additional communications, fa cilities and with the route maps that are de scribed in the next section. 4. The traffic engineer officer supervises the preparation of emergency route maps for mounting on die walb of die traffic operations The Plan room. He utilizes information made available through die highway planning survey.: The A plan for emergency traffic control has been developed and published by the Office of Civilian Defense in the pamphlet "War Traf fic Control." This plan provides for a traffic 9- operations room at police headquarters, tied in closely with the control center of the civil maps show primary, secondary,, and other highways, capacities of weak bridges, other limitations and special features such as loca tions of traffic control posts. The assistance of the military authorities b obtained in se lecting and classifying die highways. ian defense organization. Route surveys that should be made are described in OCD Trans portation Bulletin No. 1 entitled,-"Smvey of Vital Routes and Facilities." This plan ap plies at the state level as well as-4o.piumdpalities. 5. The traffic control officer, with die ad vice of the state traffic control sub-committee and local authorities, selects strategic points through die state for establishment of traffic ^control posts, and arrangra to assignments of state, county, or local pdticem manning these The remainder of this paper deals with ap plication of the emergency traffic control plan at the state level, using a hypothetical state as an example. Its application in any par ticular state might be entirely different from that given here, because of local conditions. posts during emergencies. The work in each state police district b done by the commander of the state police post in that district, fol lowing die instructions given by die stabs traffic control officer. Rerouting plans are made for meeting various types of emergen cies and each police agency b informed of Steps taken in applying die plan in a hypo its part in carrying out these plans. thetical state are as follows: 1. An emergency traffic control sob-com mittee is appointed, consisting of traffic engi neers and of police and highway personnel from the state, county, and local levels, to furnish general guidance to die program. This committee is a sub-committee of the State Highway Traffic Advisory Committee, which is regarded as die transportation of die State Defense Council. 2. A state traffic control officer is appointed on die staff of die State Defense Council. This officer, selected from die state policy is voKtttpnujon - -6. The highway repair officer develops a coordinated plan for mutual aid in road and bridge repair, utilizing the facilities of die state and county highway departments, local public works departments, die U. S. Deportmeqtjbf Agricultureand other federal agen cies. Inventories of personnel and equipment already have, been made as part of another survey. The units in each county are affili ated with the county defense council. Ar rangements also are made for using some of 11. tablisb state,.. tented izatior 12. assign center ordina for ro The trol oi desail types. 1. A - - d* s .. >. Mi ytbb* Street and Highway Traffic Section 43 these facilities for rescue and other emergency sonnel mobilizes throughout tiie area under sendees of the defense corps organizations. air raid alarm. A cordon of police at .tiie' 7. liaison already has been established be tween the military authorities and the state traffic control officer as a part of flic H.TAC program. Tins liaisonis strengthened by ar ranging for mobilization of a state police of ficer in the appropriate military headquarters at times of emergency and by providing a boundaries of the area stops all traffic en tering the area with tiie exception of vehicles authorized to move at such times.. Auxiliary personnel' along previously selected emer gency vehicle routes facilitates movements of emergency vehicles between sections of cities, counties and tin slate. direct line between military and state police 2. Heavy Bombings--Traffic control in the headquarter^ vicinity of bombed sections is taken care of 8. Close coordination is established between tiie state civilian defense headquarters and the traffic control operations room, from the standpoints of both planning and operation. Information is to tiow in both directions. by tiie police in the vidniiy, assisted when necessary by squads dispatched from stations nearby. Damage to roads and bridges is reported through-channels to the dty, county, area and state headquarters and instructions received regarding routings and establish 9. Arrangements are made for the prompt reporting of information on damage to roads anibridge*, through the local dnOan defense ment of detours. Detours are established by road repair personnel in cooperation with the police. organizations and through normal highway, and police channels, so that information 'on road conditions may be kept up-to-date at all timek Information obtained through po lice and highway channels is to be furnished to the Chilian defense headquarters. 3. Military Movements. Routes for mili tary motor movements are selected, taking in to account the road damage information. Ha route is to be taken over for exclusive' miK- taiy us^ civilian traffic will be diverted to other routes according to predetermined plans 1ft. Arrangements are. made for tnobilization of tiie traffic control officer, the traffic engineer officer, tiie highway repair officer, for rerouting, subject to changes ordered by county, metropolitan area or state traffic op erations rooms. and ffie transport officer (or their deputies) at the state traffic'operations room at times of air-raid alarm and for other, emergencies. Daring normal times, tiie. facilities ofthe room may be used to aid in the routing'of military motor convoys. 4. Voluntary Evacuations. Police^ assisted by air raid wardens, prevent spread of panic resulting from bombings by following instruc tions issued by tiie state authorities. After a period of air raid alarm, special attention is given to control of the movement of any per 11. A similar traffic operations room is es tablished in each metroppiitiui^area of tiie state,,as a part of the/metropolitan control center system of the chitistiaefense organ ization. sons desiring to leave the cities. If the num ber should be large'and tiie military situation critical, steps may be necessary, in coopera tion with the military police, and possibly under their direction, to reduce or prohibit such evacuations. 12. State police and highway personnel are assigned for mobilization in county control centers in other parts of the state, to co ordinate traffic control and direct mutual aid for rood repair within tiie counties. 5. Ordered Evacuations. Evacuations may be ordered for certain classes of persons and tiie movements may be by motor convoys. (See OCD Transportation Bulletin' No. 2, "Motor Transport and Convoys^). In such instances, especially when the movements are Operation for considerable distances, the state traffic operations room may direct tiie dispatching The operation of the emergency traffic con and routing of tiie convoys, subject' to tiie trol organization in the hypothetical state is requirements of evacuation officers and fte described here briefly for several different availability of routes. types of emergencies. Blackouts and dimouts add.other tragic, 1. Air raid alarms--The traffic control per control..problems to those already described. : -VH ,*ta ? a J a.1?*r* a*??!*.S'su f" , j . f! . ... r: , |. | i| | | p p [ 44 31strNationd Safety Congress Attention must be given to necessary mbdi- are bring discussed in detail by other speak* fications in vehicle lighting, street , lighting, ers, but are mentioned here because of their and traffic control devices. These problems importance from the standpoint, of safety. Treating Danger Spots on Routes to War Plants and Military Posts By CLAUD R. McGAMMENT TCngiweer Safety and Traffic Control, State Highway Commission of Kansas In actual practice I have found the term fore precedent has had time to get in its work "danger spot" to possess at least one of the on others. -. properties of rubber in that it is elastic enough to stretch over several' continuous miles of highway, to include areas adjacent to war plants of several square miles, to encompas& whole dries. The term may cover certain types of individuals using the ltighways and streets enroute to plants. Afew workers now find themselves making more money than they, dreamed, with the ability to do something about their appetites for liquor. Consequently, they do. Since few drink during working hours, it may seem that this subject is out of place; but we fed it fitting to include because if an accident hap While the term "danger spot" cannot be pens due to drunken driving, even if after sharply defined, it seems to be a function, in > the sense of our discussion, of the war plant workers, the car of the war plant worker, ! Jie road traveled by the. war plant worker, v and the war plant and its environs. About 25 per cent of the war plant workers in Kansas have moved here from other states. As in former days men followed harvests from western state to western state, a large number of migratory workmen in the un skilled and lower dolled groups now follow war plant construction. work hours, the worker or workers may not be able to go towork the next morning. The treatment for rids type of "danger spot" can not be too drastic. At a time like this when cars, tires, and even gasoline are so precious to the war effort of our country a man who will chance an appearance upon the highway addle in a drunken condition loathe imminent danger of not only Ids own life and the lives of others, but irreparable damage to cars and tires so necessary in our wartime transpor tation needs is little more than a traitor to his .country. In my opinion the one hundred The average worker either from out-ofstate or from relatively distant points within dollar fine and the probable loss of Ids driving license is too light a punishment. the state is moire defiant of state laws and It is probable that the fact of excessively public opinion than the local resident worker. long commuting distances in Kansas cooHence, as the driver of a car. he is a greater , tributes to the tendency of speeding and reck menace on the highways and streets. In gen less pasting movements. It is a common oc eral, he commits rite following violations: he currence for a worker to drive to .work from speeds;'he-passes cars on bills and corves; towns as far away as forty and fifty miles. he rushes pedestrians; In short, be is a reck If, for any reason such as failure to start for less driver and a living, highly mobile "dan work on time or tire or engine trouble on the ger spot" By some 'Strange psychological way, the worker feds that be may be late; process, a certain group seems to believe that it is only human to try to make up the lost because it is engaged in government work; it time by driving faster than conditions war-, can.commit traffic violations at mil and re rant for safety and tire conservation. main above and beyond any local enforce ment Treatment for this specific "danger While many of the workers* cars are in ex spot" is a function of the highway patrol and cellent mechanical condition, the average car : local peace officers. Persecutions are not used may be fittingly described as>a jalopy favored, but -for rite* sake of themselves and which is temperamental, stubborn, and with others certain steps .'must be taken early be the disconcerting habit of devdopinga me- rhahi the C wfaid rV* gestu drive Kans durio die i shoul dam Ws cited . ways afire all-wt sistin or - b west* nects ;whid fortytribal diver and 1 [i rk ng he lies EW an ed `P-: ter xX lie inlen sus rho y ent ves m or- to red ing riy ondc* ocrom Bes. for the ate^ lost rar- car lopy with me* Street and Highway Traffic Section 45 chanical ailment where traffic is heaviest and' year and a good snow removal System set tip the dances of finding a broad shoulder on in the vicinity of all defense activities. The which to get off die slab is poorest. type of surface is important from our view point due to its being the responsibility of the ^The fires in general are thin and some con State Highway Commission to make certain gestion and minor accidents result from die that the worker can traverse the road at all driver not pulling entirely off die slab to times and seasons. .Counties in many instances change tires after a puncture or blowout1 have had neither the money nor the equip Kansas has Had an unusual amount of rain ment to build or maintain properly some of during the .past two years, and it may be that die worker, rather than pull off on a soft their access roads widt die result that many workers have fought mud and bayCrbeen .un shoulder where he may get stuck, prefers to duly delayed in getting to and^from wori> chance bring hit by traffic. Travel is hot made safer by the appearance Our have ebatt; gravel, and - sand-gravet^roads-j held up underjheavy traffic and adverse^ a of so many workers* cars pulling traders of weather conditiahsmetfcer than expected. We all makes and sizes, although this situation have had littl^oy pb^jfouBle^with our con usually occurs 'during the' beginning of the crete slab our frictcouiur bituminous mat plant construction. The fret that a large per cent of the workers are forced to live in trail- roads due to good maintenance. - * ' Alignmgpt of the routes used by war plant ers due to housing shortage results in'an in creasing number of trailer towns near cities adjacent to war plants. These towns are nat urally situated on highways leading to the workep mjcans a more orderly, faster move ment with a greater safety factor, and much less work for my department. Grades, curves and restricted sight distance incidental tothem .plants and frequently the entrance or exits reduce the load capacity of the road by slow or both are near the crest of a hill where ing traffic. Also, heavily loaded trucks, im lack of sigfat distance forms a constant hazard pede traffic by having to go into lowet gears to the turning movements necessary to enter on the hills. The route to one of our war ing or leaving the camp. Adding to this haz plants for a distance of ten mQes Is so con ard is the fret that oar heaviest traffic counts are obtained at prints on the highways at city limits. tinuously a series of vertical and horizontal curves with no tangent distance between that it was necessaryforus to create a no-passing .Physical ContEtiona War plants in Kansas are invariably lo cated adjacent to our state and federal high ways and seldom more than ten miles from a city or town. These highways in general are all-weather roads, a large proportion con sisting of concrete slab, bituminous macadam or bituminous mat. In rare instances in -western; Kansas a sand-gravd; road con nects die plant, and sdnrbtmding towns from : which come 'plant employees. Naturally, with forty-two war plants and military posts dis tributed over all' sections of Kansas, many dimsities in types of surfrdn& alignment and traffic loads are encountered. ' * *.' , . Our problems are other'amplified or ren dered more complex by type of surface, align ment of road, maintenance, width of traveled t^ty,. amount of normal traffic, whedter rural or dtjr road, and whethec the road is subject to seasonalJsubmergejte by flood waters or fft&kaityxi by iuow.;. Snow Hazards should be ditfsidered to a big extent at this time of jfi one location to avoid a' fiuge munitions plant py merely placing signs calling for the public's cooperation. . Maintenance plays a big role in eliminating danger'spots in the form of high weeds on curves restricting sight distance^ weeds that obscure important regulatory signs, building up too doping shoulders, filling the ruts at the. edge of slab, cutting the corrugations from chatt and gravel roads, patching pot holes in bituminous roads, replacing signs that have been knocked down, and washing the mod from signs. Width of traveled pray plays a rig part' in the safety program. With the exception of a few miles of four-lane highway, most of the roads that serve our war workers are two-lane concrete slab, eighteen and twenty feet and 23 feet in width. Our bituminous road widths' vary1 from twenty-six to thirty feet, We have >fotmd that a few feet in width ofrthe .roadway means a big saving in life. 0 K 46 31st National Safety Congress and property. By adding a two foot of bitu- millions of dollars damage has been done minous material to each lane of an eighteen to highway grades and surfaces. Fortunately, foot slab, we stopped entirely a long series we have a lot of mileage in our road system. of accidents due to cars running off die edge Kansas ranks second only to Texas in road of die slab onto soft shoulders and thus get mileage and boasts of 110,000' miles. This ting out of control. We have found that some figure of course includes county and town danger spots are caused by improper design ship roads. With so many roads it is easy such as too short transition distance from a to find a detour which will not delay rite four-lane to a two-lane highway; dumping worker too much. It goes without saying traffic from a four-lane into an eighteen foot that much care must be observed properly to city street with no transition distance; build barricade washouts and to sign detours even ing three roads to intersect at one point more thoroughly than a main highway. Last' thereby causing confusion and congestion , winter we had a great deal of sleet in cer while the driver waits to make a decision. tain sections of the state and it was not an uncommon sight to count as many as ten cars The amount of normal traffic other than to tiie mile in the ditches near war plants. war workers on a highway route to a war Fortunately, most people drive slowly on manner be no right thatxn mentc cars ai work.! .get bit while t procedt wsy. 1 this Is rial gr Visitor 'group. beginni plant means a great deal. A small traffic sleety roads and so it is seldom that such an Pari count greatly aids.the ingress and egress of workers in and out of die plant Frequently the cost and trouble of placing officers there to control traffic is eliminated, especially dur accident has serious results. Our highway trades work night and day in an attempt to sand all hills and curves on routes used by war workers. Where sleet occurs intermit rock I that i- weathc a few 1 & ing die morning shift change, usually at seven tently somesigns are necessary to warn mo again o'clock. At that time rural roads some dis torists who gather confidence immediately tance from a city- are practically deserted the surface becomes normal and are unpre with p except for workers at the plant On die con pared for recurrences of slippery pavement Rntr trary a heavy normal traffic makes a truly as pos: dangerous spot at the entrance of a war plant and if possible should be detoured or offi The War Plant is in inspect cers in control at tire point is a prime neces War plants in Kansas consist of air bases, 'made ; sity. At some plant sites near our larger aeroplane factories, glider factories, ammuni slow t cities, as manyas five State Highway Patrol tion plants, invasion barge factories, mili feet in men work traffic, assisted by six county tary and naval bases, and army camps. They cars. 1 patrolmen. In congestion such as this, no are widely distributed throughout the state, least fi type of sign or signal will be found adequate. and all more or less similar daring construc To ke tion in that they employ workers numbering guide: Whether a road lies within or without the limits of a city is of importance to us in that if the road is a city street there is little under the law that we can do to improve it If the city street happens also to be a con necting link in our State Highway system we do have die authority to suggest proper signing and to approve or disapprove any suggested by the city. In cases of dries with traffic engineers our problems inside the rity are reduced to a minimum because in every instance we have found dty traffic engineers from 2,500 to 35,000. These workers come from an avenge area of about sixteen hun dred miles, the plant bring approximately in the center of the 40 mile square. Workers from this large area usually come to the plant entrance front two directions on the highway. Their pressing necessity upon ar riving at the plant is a parking place. This must be within titp plant area, since the high way commission must for reasons of safety prohibit parking on rite dab shoulders or anywhere within the right-of-way. Fre If ti should width, physic that tl direct! orderii acridei raugec the sa they c to be ready and willing to cooperate one hundred per cent Other danger spots on routes to plants are those caused by flood waters and by, snow blockades and sleet During the past two years floods have taken a huge toll in Kansas. Eighteen bridges have been washed away, some of them major structures, and quently, a parking space is provided within rite plant area which is adequate- in dry weather, but which is impossible in wet weather. ' The state safety or traffic engineer should contact the official in charge, who may be a civilian engineer, or army officer, and have a conference. In a polite and diplomatic Stoj ofexi strict fromj cer is ticedi out of the hi practii Street and Highway Traffic Section 47 manner, he must be told that: There must Perhaps toe best way to avoid difficulty ) be no parking of cars within the highway over signs Is to discuss methods of signing ' rigfafcof-way adjacent to die plant area, and in use in the State, and to give die com-., that1this refers not only to official govern mandant and toe plant safety engineer each.) ment cars and workers cars, but to salesmen's a copy of toe State sign manual. One nay cars and those belonging to applicants for also offer. to design any signs toe army work. Salesmen and applicants cannot readily officials fed may be helpful to either their get into the area and must park somewhere employees or through traffic. In this way, while they are obtaining passes. The natural whether, one quite approves or not, at least procedure is to park along the state right-of- the sighs wiU be uniform. In Kansas, we way. The only method by which to prevent have toe Uniform Traffic Act, and the State this is to have a parking lot for this spe Highway Commission has toe only author cial group, and to have it off the highway. ity to {dace or remove signs within toe right- Visitors may also use this lot This latter of-way limits on state or federal highways. 'group may easily run into hundreds during beginning of construction. On normal high-speed highways adjacent to. war plants, we have usually found it Parking lots must be surfaced with crushed necessary to establish speed or no-passing rock, gravel or other type of surfacing so zones or both. However, if the no-passing that they may be utilised during rainy zone is enforced a speed zone seems unneccs- weather. If the lots are a sea of mod, only. sary, since the. slowest vehicle in line auto a fear hardy souls will venture into them, and matically sets toe speed. On that portion of , again toe adjacent highway will be filled highway near toe entrance or exit to a war with parked cars. plant we consider. it ill-advised to permit passing movements or speeding not only dur Entrances to war plants should be as-far as possible from the highway. If toe entrance is in line with toe highway right-of-way, inspection by toe plant gnards should not be 'made at this pant, since this process is so slow that toe highway for several hundred ing shift changes, but between shifts. We fed that if there is one place in the state where every precaution should be taken to prevent accidents and to insure safety, it is in toe vicinity of a war plant. One injury or totality involving a key man may work in feet in each direction is blocked by waiting calculable harm to the plant's productive J cars. The guard house should be stationed at capacity. It may be stated here without boast- least five hundred feet from such an entrance. lug that our work in this respect is very To keep cars in line while inside toe area dose to one hundred per cart guide posts set closely together may be used. It is sometimes possible for toe state traffic If toe entrance and exit are the same it or safety engineer to be of great hdp to the should be at least 40, preferably 60 feet in plant's - safety engineer in toe matter of widto. There should be a fence or other 7 acquainting him with local laws and condi physical division of toe entrance space so tions and in furnishing safety material for that the paths of cars coming from opposite distribution among employees. directions wilT not conflict This promotes orderliness of movement and prevents minor The state traffic engineer will find his accidents. Parking lots should be so ar services wdcomed by the mayors and chiefs ranged that cars leaving the plant may use of police of cities under 50,000 population the same side of toe entrance through which which do not have a traffic engineer. With they entered. ti;e aid of local officials!, the state traffic engi neer can prepare zoning charts and cstab- - Stop signs should be installed at points lish routes within the cities- for use by war of exit into the highway. They should rate plant workers which will cause them to miss strict observance from all vehicles exiting congested anas where much valuable tone fromjthe plant unless at times when an offi would be lost Also, assistance may be given - cer is present to direct traffic. We have no local authorities in toe matter iff location ticed a tendency on the part of trucks coming of trailer camps adjacent to or within tides.. out of plants to -fail to stop before entering Many cities are utilizing fair grounds, ball toe highway. This is obviously a dangerous . parks and city parks for trailer camp sites. practice and should not be permitted. Locations -such as these have the advantagesJ & i. f! v I; fir.. K- I P i? * 5 i. IT. f !; i * ' r. VJL 's}. * ;v < .* 48 31st National Safety Congress of availability of sewage, lighting, heating, and entertainment facilities. The state traffic engineer is often called upon to make complete city surveys in smaller cities near which it is proposed to build a war plant. Frequently, die city authorities may be appalled at having .to provide for the possible doubling of the city's popula tion, and this within a very short space of nece time. It becomes necessary to plan through . offia streets, rearrange' parking, provide addi- I adeq tional parking lots, establish truck routes, I inter increase police and fire personnel, etc. Signal- patn ization of certain intersections becomes neces- | and sary, and many other steps must be taken to ready the town for its expected increase in population. Treating Danger Spots on Routes to War Plants and Military Posts Discussion by WALTER F. ROSENWALD Traffic Eng., Minnesota State Highway Commission, St. Paul, Minn. . The "Danger Spot" has been correctly termed by Mr. McCamment, a. function of the war plant workers, the car, die road and the war plant itself. Of these four factors the first and the last mentioned would, seem to present the greatest opportunities for im provement So far as die war plantritself is concerned, the problem resolves itself down fb die attitude or interest of the plant man agement The car and the road are both, of course, important factors in any traffic prob lem, but proper attitude on die. part of die workers and die plant management will largely offset the deficiencies of the car and the road. Mr. McCamment has well- described the war production worker drivers. We have all ran into this, same problem and it appears that the quick and effirietit prosecution'of driver violation on the"part of such workers is the best and probably the only way of making die war worker driver recognize his responsibility and of correcting his attitude with regard to traffic regulation. Rigid en forcement supported by the full cooperation by war plant management can and is accom plishing a great deal. Many persons including war workers, do not seem to realize the problems resulting from/extremdy high volumes of traffic in war production areas. Rather their actions indicate a complete disregard for the usual regulations as though they each had a preemptory right to the sole use. of the road. Experience has proven in Minnesota as well as in other states that tins'attitude is quickly changed by full and complete coop eration of the traffic, authorities and plant management - The term "Danger Spots" should also in clude places of high congestion. While it Is true that most highways furnishing access to large'plants and military establishments, were not designed to carry the extreme leads now placed upon them, the simple staggering of hours of working -shifts has reduced the critical load sufficiently to allow the over burdened roads to handle unusually heavy' traffic fairly satisfactorily. As has been stated, the locations of many of the recently constructed plants are from 10 to 15 miles outside of larger dries. In Minnesota we have found that traffic on the highways leading to these plants has in creased from 50 to 300 per cent in spite of a general reduction (oyer the balance of the state highway system. Increases of this kind might not prove to be serious on a road that formerly carried light traffic, but when they take place on some of tire heavier traveled roads as is the case in Minnesota, the situa tion can become very acute. We had one location near one of the larger war production plants where it was necessary to have from six to eight patrol officers in a comparatively short distance in order to keep traffic from stalling completely. Four of these officers were required to be at a single intersection. Arrangements were made for in stallation of traffic actuated signals, and al though employment at the plant has mate rially increased since our installation, ..the actuated signals have handled the traffic with a minimum of congestion, and it is no longer strut by t imp< part may usua dice out wor! affet mor Sud outs the fore part M dim Min C serve C stri] addi stall u< it j T thre spa live erty this ing men & .. * Street and Highway Traffic Section 49 necessary to have a large number of patrol officers at this location. The situation is now adequately taken care of by one officer at an intersection, the others bang released for patrol duty on other routes between the plant and the cities. ^ 'J We have had little difficulty with adequate parking facilities located off die highway right-of-way. In all cases of large plant con struction, adequate space has been provided - by the plant management for parking. It is important that, access into and out of the parking lots be convenient so that the worker may park and unpark without delay. If un usual difficulties or inconvenience are experi enced by the worker in trying to get into or out of a parking lot; both the morale of the worker and the use of the parking lot will be affected and drivers will try to find other more convenient locations to leave their cars. Such a condition would encourage parking outside of the plant area on the shoulders of the road and might require additional en forcement officers to prevent such improper parking. l: Methods 'which we have found effective in eliminating danger spots on access roads in Minnesota,^may be summarized as follows: Channelization lines have been placed at several intersections. . Center line striping and "No Passing" stripes have been continually renewed and additional regulatory signs have been installed. Stop" signs have been removed at inter sections where traffic on the more heavily traveled highway was undulyjimpeded. Sharp curves have been delineated through the use of reflectors placed on guard rail posts. Encroachments, particularly advertising signs and gasoline pumps have been checked and eliminated, and parking, has been cor rected either by changing the method of park ing or, prohibiting all parking. Iti one small -^community ldjacent to a large tordnance^pl^ng die school board on our recommendation adjusted the school hours so as"to avoid conflict with the heavy traffic at the change of shifts. A shoulder widening project has been car ried out on one trunk highway on which the pavement was only 18 feet wide. Traffic actuated signals have been installed at two intersections, with the contract now . let for 2 additional installations. / Construction is now underway in which existing narrow two-way", pavements which constitute critical bottlenecks are bring re placed by a few miles of four-lane divided highways. ^ We have met with the greatest degree of cooperation oil the part of the plant managements, military authorities in charge of oper ations and with local officers in the commu nities affected. Without this cooperation our problems would be considerably more severe than they are at the present time. Treating.Danger Spots on City Routes to War Plants and Military Posts By JAMES E. XOER r Traffic Engineer, Indianapolis, Indiana . The. conservation of equipment and tires througlfgasoline rationing and the maximum speed limit of 35 miles per hour will save lives and reduce personal injuries and prop erty damage faster than conld.be achieved through, the methods we have been follow ing-of engineering, education, and enforce ment We have threatened to revoke drivers' license for speeding, but we still have speeders, but when a motorist is threatened with the loss of bis gasoline rationing book, yon will find that the speed rate will drop. Workers in the war industries have been some of the. worst violators, but. they are going to learn that the enforcement of a speed limit to conserve materials will -be A few weeks ago I visited several eastern cities where gas rationing was. in effect. I 4. Half-red lights were installed on the talked with many engineers about traffic center piers of all railroad elevations. matter?, and in response to my question of "The treatment of danger spots on city robtes-towar industries," I received the same reply--"Now that we have gas rationing, there is less traffic congestion and conse quently there are fewer traffic problems." , Some of the engineers I talked with are making plans for the construction of safety 5. Parking in the vicinity of war indus tries has been restricted. In some cases there is no parking at alL In other cases there is no parking during certain hours and limited parking -during other hours. Re strictions have been established as required by the particular conditions. Alt of re ing fa cated transi bile' < forme pletd; islands, channelization, eta, but the war 6. Manual operation of traffic signals has transportation conservation program of the helped to reduce congestion at some inter Th< nation and states through staggered hours, sections during peak hours. Cooperation of transi p group riding and speed reduction is taking railroad . officials in controlling switching . omy, the full time of many traffic engineers. movements has been a major factor in treat combi ing some spots. persoi However, in my opinion, the decrease in destin motor vehicle travel will, .be largely in rural 7. The State Highway Department has will i areas and on city streets during die off-peak obtained federal aid in improving access of tin hours: Few of our new war industries are roads. times served by the city transportation lines, and it will be necessary for the workers to travel by automobile. Therefore we still have the problem of making the routes to war indus tries operate more efficiently in orderto re 8. On routes to war industries it has been necessary to establish "No Passing" zones at some spots for greater protection to pedes trians and motorists. areas in sui To ir is nec delay* duce congestion, delay, and accidents. In the scbed larger cities the problems of . the mass , car 9., Congestion and danger resulting from plish riers will be of major importance, since the double parking were eliminated by allowing now, street cars, trolley coaches and buses are "Truck Stopping Only--15-Minute limit" mass transporting more people than ever, before. during the hours of peak load caused by war Indianapolis has had a great increase in population due to the new war industries, and the resulting traffic congestion has brought many problems at new locations. During the past year we have employed these various methods to help secure traffic safety pn routes to war industries: 1. We have laid 40 miles of Prismo cen ter- line stripe. This type of painting has been found very effective for night driving, and we expect that it will be an important factor in the operation of emergency vehicles during blackouts. We have laid many more miles of center stripe; using ordinary traffic paint, and also we have', painted the-curbs at workers on changing shift* 10. In order to get the trolley coaches to the curb and thereby have better loading zones for passengers and also clear the. traffic lanes, the operating company was per mitted to establish 75-foot lading zones at intersections and 100-foot loading zones at mid-block stops. 11. By changing the direction of travel through the bos terminal we were able to eliminate over 800 left turns during an aver age day. After seeing conditions at termi nals in other cities, I think Indianapolis; is fortunate.in having a large off-street bus terminal. Sta ' to fift the u crease autoir tion a to tbi and t was i facing device bowel velope (Tn'ibus 'durini ducini major intersections and turns. 2. We installed sodium-vapor lights at danger spots as at Madison Avenue and Pleasant Run Creek. 12. We constructed islands to aid pedes trians in crossing intersections. Three of these were constructed at avenue intersec tions in the downtown district Tra dons raontl mass 1kL * Street and Highway Traffic Section 51 Staggered Hours to Conserve Mass Transportation By THOS. E. WILLIER ,) War Transportation Administrator and City Traffic Engineer, Houston, Texas Although the term "staggered hours" is of recent origin, therearranging of work ing hours and school hours has been advo cated for many years to solve traffic and transportation problems. When the automo bile was developed, in the United States, former inefficient travel habits were com pletely disrupted. The essential qualities in every medium of transportation are safety, convenience, econ omy, and speed. These elements must be combined to provide efficient movement of persons from a point of origin to one of destination and if any one is' lacking service will not be satisfactory. However, because of the uniformity of starting and stopping times of workers in business and industrial areas the speed factor has been eliminated in surface travel during peak traffic periods. To increase speed and reduce travel rime it is necessary to remove traffic congestion and delays. Rearrangement of working hour schedules by staggering hours will accom plish this purpose and, even more important now, will make possible the conservation of mass transportation. Statistics indicate that during the past ten to fifteen years .the amount of walking and the use of mass transportation facilities de creased because of the increase in use of automobiles. In urban areas, traffic conges tion and accidents continued to mount owing to the great number of automobiles in use and to the physical conditions of streets. It was posable to improve streets by resur facing, widening, installing traffic control devices and constructing grade separations; however, the traffic patterns which bad de veloped imposed heavy motor vehicle loads (m'ibusines$'areas and on major thoroughfares (luring tbepeak traffic^periods, thereby pro ducing congestion and delays. Traffic specialists have measured the varia tions in traffic flow hourly, daily, weekly, monthly and yearly for pedestrian, auto and mass transportation movements and, as a re sult, consideration has been given to the reduction of traffic congestion at peak periods. Traffic has been rerouted, one-way streets established, parking restricted or removed and traffic regulations adopted. However, it has been impossible further to reduce con gestion and delays and move persons more efficiently in automobiles and in mass trans portation vehicles during the times when persons Were traveling to and from work becauseof working hour schedules winch have been in effect for many years. In business districts and in industrial areas where the eight-hour day was accepted as the standard working period, die usual work ing hours generally were from 8:00 a. m. until 5:00 p. m. with a one-hour period for lunch. Everyone has noted .the three daily "traffic bottlenecks" which have been evi dent because of uniform working schedules, one'prior to 8:00 a. hl, one during the noon hour and one shortly after 5:00 p. m. Or. Miller McClintock, an outstanding authority on traffic, published a book, in 1935, based upon intensive field studies and research in which he referred to existing traffic peaks. This publication entitled "Traffic and Trade" contained recommenda tions for . spreading the peaks and for elim inating traffic bottlenecks by shifting .work ing hours. Unfortunately, tire American peo ple generally would not accept such proposed changes because of custom and habit Con sequently, traffic congestion could not be materially reduced on city streets during the morning and afternoon'peak traffic periods. Prior to this year, owing to shorter work ing hour schedules': which, were adopted in factories and industrial plants, factory work ers, office employees and school children were generally observed traveling on con gested thoroughfares about the same time in tiie early morning and late bfternoon. Be cause of the great number of individual auto mobiles in use transporting persons to and from work, traffic conditions bn major thor- 52 31st National Safety Congress oughfares were rapidlybecoming intolerable. , ^ - Mass transportation' problems were fur- The lack of adequate parking space and the congestion evident on streets in business areas have caused a decentralization of busi ness and property values in downtown busi ness districts have depreciated because of the general growth of community centers and outlying shopping sections. Shoppers have been discouraged from trading in downtown business districts because of the lack of parking facilities on streets and in storage garages which were filled to capacity with vehicles used by office and store employees. .4her complicated by the fact that large war production plants' were located in outlying sections of dties or even beyond the limits of municipalities where transportation facil ities were not available. Additional buses and street cars were required on existing routes and, in many cases, new routes had to be established to provide transportation for thousands of war plant workers. Hous ing facilities have been provided in the near vicinity of some war production plants; how ever, transit companies generally have found it necessary to expand, their operations to make transportation available for workers Increased Mass Transportation - who reside in existing residential areas lo During the latter part of 1940, when the United States entered upon a large scale program of production of war supplies and equipment, demands for passenger transporta tion rapidly mounted. This trend continued during 1941 and. mass transportation facil ities were expanded to meet the requirements of additional numbers of persons. Owing to -- the unprecedented demands for mass transportation, transit companies increased their cated many miles from industrial areas. These additional requirements for mass transporta tion added to the increase in the use of transit facilities by other than war production plant workers produced congested conditions in buses- and street cars and led to the conclu sion that a complete breakdown of transpor tation facilities might be expected unless measures were adopted to relieve the situa tion. orders for new equipment, but on. September ' 1, 1941 an order was issued by the Office of Production Management under which the production of street cars and buses was cur tailed. Further restrictions were placed on the production of. transit vehicles this year so that now, aside from about 2,500 buses which will be produced and issued to cities where the demands are greatest, it is evident that no additional equipment will be available. After thorough analysis of transportation requirements, Joseph B. Eastman, Director of die Office of. Defense Transportation, .pre pared a Plan for Conserving Vital War Transportation and, in April of this year, he urged the adoption of the Plan by State and City Officials. He indicated that it was necessary to restrict the use of automobiles to a minimum and make maximum use of all mass, transportation facilities so. that rubber' Passenger traffic- on buses and street cars and other critical materials required in the continued to increase at a rapid rate after production of war supplies and equipment automobile production was entirely stopped could be conserved andnecessary transporta and tire rationing became effective in order tion facilities could be provided,where needed. to conserve rubber stocks. Operators of His threerpoint program consisted of the transit facilities were cognizant of the grav following: ity of the situation which confronted them because they realized that more equipment would not be available to meet increased demands for transportation when individual 1. Stagger business, school and working hours to reduce peak hour demands for mass' transportation facilities. automobiles were withdrawn from service. Many other new problems confronted transit operators. A shortage developed in replace 2. Improve traffic regulations to expedite the flow of vehicles. ment parts, employees resigned to enter the 3. Make more efficient use of private auto- * military service or to accept more lucrative mobiles through group riding. positions in industrial plants and, although companies have been eligible for bus tires, It was recommended that staggered hours complications have arisen in obtaining the plans be adopted prior-to. promoting-group proper sizes and the number of tires required riding so that working hour schedules would . when they were, needed. first be stabilized. Street and Highway Tragic Section -53 Public Cooperation so that existing transportation facilities may It has been possible to obtain voluntary accommodate the workers. acceptance of such proposed transportation . In order to eliminate a waste of transpor plans which often have caused great incon tation and to transport office and store.em- veniences and hardships for persons traveling ployees, industrial workers and school chil by individual autoraobileand by mass trans dren, it is essential that staggered hours be portation facilities. In recent months people applied in both urban and rural areas. have been so interested in furthering the war Through-^ the staggering of working, hours effortQthat they have willingly accepted in offises/aiid stores in city .{business districts changes in personal travel habits and in the major morning and afternoon traffic working hours. f peaks may be -naterially reduced-and the A great amount of non-essential use of all transportation facilities, including individual transportation lead spread over greater pe riods of time even though the total number of hours of work remains unchanged in each automobiles, has been eliminated and essential transportaton is being restricted to a mini mum. Figures quoted by the American Transit Association in. its publication en titled, "Trends of Transit Traffic," indicate that prior to this year city automobiles were teed about the same number of miles for . social and recreation travel as for business. The statistical analysis showed about 18 per cent of the .total travel to work; 30 per cent business, 2 par cent shopping, 1 per cent to school and 49 per cent recreation. Much of the recreation travel has been eliminated, business travel' has been greatly restricted and travel to work has been redtkxd through use of mass transportation and through group riding; , ' . particular place of business. However, it is necessary to consider transportation require ments on individual routes and in certain industrial areas as well as in business dis tricts. Additional mass transportation may be made available on congested bus and street car routes through the rearrangement of working schedules in companies and indus trial plants located on those routes. Shifts may be staggered in large industrial plants so that tiie demands for mass transportation mil not occur at the same time. School hours may be arranged to eliminate requirements for bus and street car service by children and workers during,the same periods in the morning and afternoon. If necessary, working shifts within a large plant may be staggered The increase in the use of .mass transpor to further spread requirements for mass t tation vehicles has been particularly notice transportation. E able in those sections of the country where I gas ratiomng.has been in effect Transporta Spacing and Timing r' tion authorities agree that mass transporta h tion offers many advantages over individual In staggering hours it is essential that t car transportation. It is cheaper and much consideration be given to the space dement as more economical of street space; therefore well as die time dement. Co-ordination and if sufficient equipment were available, the integration of working hour schedules must transition from individual motor vehicles to be effected in business areas and in manufac buses and street cars would be beneficial. turing districts along with those of school Traffic congestion could be reduced, parking hourschedules so that through a change in spaces in the downtown business areas could hours in one district an additional load will be eliminated to provide a more fluid move not be superimposed upon the'tnmsit-facil ment of motor vehicles and mass transporta ities at another point along a route. To Illus tion systems could be operated more efficient trate this point, assume that a war produc ly. However, new equipmentc cannot be ob tion plant employing a great number of peo tained and, therefore, it has become necessary ple is located on a bus route half-way be to prepare plans to utilise the potentialities tween a downtown business district and an of existing mass transportation facilities. outlying residential section of a large city. Many cities already have adopted staggered If employees in a number of offices and hours plans to reduce peak demands for mass stores in the business, district stopped work transportation in the morning and afternoon, at 5:30 p. m. and the workers in the indus and working hours in large war production trial plant stopped work at 5:45 p. m. it is plants have been adjusted by staggering shifts probable that tiie buses serving both tiie busi- V V* v"- i" f:- y. .f W If BI if s.: m m) 54 31st National Safety Congress ness district and the . industrial plant would he overcrowded even though stopping times were staggered. After a bus left the busi ness district with a full load; space would not be available for employees of the indus trial plant in traveling to die residential area. Naturally, other factors may affect a case of this kind and so it is important that those responsible for developing staggered hours plans carefully analyze all existing condi tions before recommending shifts in working hours. i Since the Office of Defense Transportation proposed the staggering of hours to conserve mass transportation, numerous dries have adopted'staggered hours plans and others are now engaged in conducting necessary sur veys and studies to collect factual data upon which plans may be based. Through refer ence to a plan which has been tested and found effective it will be possible'to indicate the advantages of staggering hours and the methods and procedures which proved satis factory. In my position of War Transportation r Administrator arid City Traffic Engineer for Houston, Texas,, it was my responsibility to plan and supervise the field surveys which provided a baas for the Houston staggered hours plan which has been used as a modd in many other dries throughout the country. Although this plan affected only employees In rite downtown badness district of Houston, the principles and methods involved may be applied anywhere, in urban or rural areas. Three' separate staggered hours surveys were conducted in Houston. 1. Questionnaires were distributed to workers in the badness district to determine starring and stopping rimes of employees and relative lose of buses and^automobiles. 2. A field check of buses and bus pas sengers entering and leaving the badness dis trict was made. 3. A Cordon Count of automobiles and persons in automobiles entering and leaving the badness district was conducted. The following surveys were all .completed in one day, on Thursday, -May 21/1942. Working Hours Survey Questionnaires were distributed among the majority of the large offices and stores in the Houston business district by the Research Department of 'the Houston Chamber of Commerce. Copies of the questionnaire form and of a sample questionnaire were distrib uted in office buildings through the co-opera tion of the Office Building Managers Asso ciation by leaving a copy with each manager in the morning and then collecting it in the afternoon after it was filled in. The ques tionnaire requested information relative to rite arrival and departure times of employees in various business groups in badness offices and in stores and the number of persons in each group who used buses, autos and other means of transportation in traveling to and from the business district Many of the larger places of business were contacted by tele phone. About 3,000 questionnaires were dis tributed and replies were received relative to the working habits of approximately 23,000 individuals. All of the data was tabulated, without charge by the local International Badness Machine Company in co-operation with tiie Statistical Department of the Hum ble Oil Company. Bin Survey On the same day that the questionnaire forms were distributed, a check of bus move ments and the number of persoos in buses entering and leaving the business district wa conducted by the Houston Electric Com pany, the company which operates tfae*bqs. system in Houston. Employees of that com pany counted the number of buses and pas sengers on buses in tire three hour period from 6:30 until 9:30 in the morning and from 3:30 until 6:30 in the afternoon. A tabulation of the field data was prepared to ascertain the volume of bus traffic inbound and out bound in the morning and afternoon, in 15nrinute periods. C Automobile Cordon Counts O On May 21, the day when questionnaires were distributed in the working hours survey and when the bus survey was conducted, the Traffic Engineering Division of theGty of Houston conducted a traffic survey of motor vehicles entering and tearing, the downtown business district in the morning and after noon peak hours. Traffic counts were made at tiie same locations and for the same periods as the Cordoi survey count Toe sous pc busmes afternd interse* area. ' locatioi persons oatbots this pm <300 ve numba the mu total no automo average each o survey in tiie < number busies in auto The i iyzcdtl charts data a were tu gered 1 Street and Highway Traffic Section 55 as those used in the bus survey. The same It was evident from the observations of Cordon Area was used in the working hours bus. and automobile traffic movements that j survey, the bus check and the automobile a greater percentage of persons entered the count ^ business district in buses during the morning Inasmuch as funds were not available and it was practically impossible to obtain men peak periods than at any other time of the day. However, during the peak 15-minute periods from 7?30 to 7:45 a. m.and 7:45 to to make die automobile counts, the survey 8:00 a. m. about the same number of persons was conducted with the assistance of. 70 entered the business district in buses as in volunteer women from the Office of Civilian automobiles. Defense. These women worked for three ' hours in the morning and three hours in the The relative use of buses was somewhat afternoon and produced. accurate results. heavier prior to 7:30 aim. and fighter after Special forms were designed for use in mak 8:00 a. m. Buses were overcrowded teethe ing the traffic counts. Each counter checked 30-minote period prior to 8:00 a. m. This motor vehicles traveling in one direction only peak demand for bus transportation during. -- ,, at one of the 70 Inbound and outbound count the morning hours clearly illustrates the ad- ' "\ ing stations. The exact location and die direc vantages of rearranging working hours , so tion in which the traffic was to be enumerated that unused seats in buses may be filled dur-^__ were Indicated on a small map of the Cordon fog tiie off-peak periods and, over-crowdfog area and each counter was given one of these may be reduced during the peak periods. maps and an assignment sheet. Owing to Buses were even more .crowded in the period the great number of vehicles to be counted prim* to 8:00 a. m. because a great many by each field checker and to the fact that persons work just outside the business area automatic counters were not available, a form and, consequently, many persons leave buses was prepared for counting vehicles quickly before,they arrive downtown and board buses and accurately. after they leave the district on routes serving residential areas. Buses in Houston lave an To determine the average number of per average seating capacity of about. 35 persons sons per automobile entering and leaving the yet there was an average of 46 persons per business district in the morning and in the bus between 7:45 and 8:00 a. to, without tak afternoon, a check was made at four typical ing into consideration the number of persons i intersections oh'streets entering the Cordon who left those buses, before they entered the ; area. Counters, were, stationed at the four Cordon Area. - locations to tabulate tire actual number of persons in automobiles traveling inbound and Between 7:30 and 7:45 a. m, 4,647 persons outbound. The fotm which was designed fo^entered foe business district In 110 butes, an this purpose permitted the tabulation of nearly sreeragp..of about 42 persons per bus.. During 300 vehicles fo.% 15-mfoute period for foe^tne petfod from vs30 .to 6:45 a. m^^bpses number of persons per vehicle. By dividing^ were observed entering foe'busiq4& dBsboct the number of vehicles checked into foe ac with an average of only 24 persons periods tual number of persons observed In all of the and between 9:15 and 9:30 a. -- automobiles, it was posable to ascertain the were counted with an average of 18 persons average number of persons per vehicle at per bus. These figures indicated foe avail each of the four locations. Results of this ability of space in buses in foe off-peak pe survey were applied to tire 70 locations used riods.. The objective of foe staggered hours in tiie Cordon Count todetermine the actual plan was to spread the bns.loads more evenly number of persons entering mid leaving tiie in tiie morning and afternoon. business district in the morning and afternoon in automobiles,in 15-mfoute periods. Tabulated Replies The City Traffic Engineering Division ana lyzed the results of all surveys and prepared charts and graphs based upon the statistical data and foe graphical presentations then were used in tiie preparation of foe final stag gered hours plan. . In tabulating replies received in foe work ing hours surrey 24 business classifications were established. The morning piak occurs at 8:00 a. m. and foe evening peak at'5:00 p. m. Of the total number of employces who supplied information relative totheir working C* .... ..... W yv.ygM--:.v.-a.'-yU-J- --.V n 56 31st National Safety Congress habits, employees of four major oil companies hours. The Committee on Emergency Trans constituted the largest single group starting port stressed tiie fact that sufficient bus ca work at 8:00 a. m. A total of 4,451 persons pacity was not available on many routes and are included in that group out of a total of that all equipment was bring used. Stagger 11,056 employees who indicated that they ing of working hours was' proposed to al started work at 8:00 a.m. Only a few work leviate the overcrowded conditions on bases ers reported to places of employment prior and to prepare for future increases in re to 8:00 a. m. but, as the chart indicates, many, quirements for bos transportation by persons reported at 8:30. Department stores opened who would not be able to obtain replacements at 9:00 a. m. at the time of toe original sur for their tires and automobiles. The public vey and closed at 5:30 p. m.; however, store was warned that if gas rationing should be employees were required to report between come effective in Houston, the number of 8:30 and 8:45 a. m. Owing to. variations in buses in use could not carry additional per total working hours and in toe dosing tones sons who would use mass transportation fa of offices and stores, toe afternoon peak was cilities because of an 'inadequate supply of not as high as toe morning peak In 'adjust gasoline for their automobiles. ing working schedules fa toe morning' it was necessary to consider toe effect of shifting After toe plan was completed and approved, starting tones so that additional peaks might . several meetings were hdd with executives not be created in toe afternoon. of toe major o2 companies, department store The total proposed staggered hours plan was based upon a study of all of toe statis tical data which had been collected in toe three surveys. This proposed plan was ad opted, substantially as recommended, with only two exceptions. The major oil compan ies adopted a 7:30 opening time instead of toe recommended 7:00 a. m. and department stores and retail stores agreed to open at 9:30 instead of at 10:00 a. m. as originally recom mended. managers and1 other enqdoyers of large groups of workers and the proposed rear rangement of working hoars was fully ex plained. Members of toe Committee on Emer gency Transport met with company executives with whom they were personally acquainted and urged co-operation in the adoption of the proposed plan. The staggered hours plan was presented to the Houston Retail Mer chants Association at a luncheon meeting on June 9. Within only a few days, the Associa tion members and the heads of the major oil After toe staggered hours plan was com pleted, a Committee on Emergency Trans port of toe Houston Chamber of Commerce aided in obtaining necessary acceptance on the part of employers and employees. During toe preparation of the staggered hours plan, a publicity campaign was conducted twito toe aid of local newspapers and through personal contacts. It was emphasized that a rearrange ment of working hours was necessary in order to prevent a complete breakdown in toe ex isting transportation system. Reference was made frequently to the necessity for conserv ing mass transportation eqmpmoit so that critical materials could be used lor war pro- dnetion. __. \ companies agreed to adopt the recommended changes in hours, substantially as proposed, for their respective employees. Letters were then mailed by toe Emergency Transport Committee to all other business organizations affected by- the plan, and individual compan ies were requested to indicatc torir co-opera tion by returning immediately toe self-ad dressed stamped postcards which were sent to them with toe letters. Practically all of toe companies which were requested to change their working hours agreed to co-operate and toe staggered hours plan became effective on July 15, 1942, only one mouth from the time when work was first initiated on toe prepa ration of toe plan. To offset statements that increased de mands for mass transportation service could be met by toe local bus company by punhas ing additional equipment, news articles re ferred to information received from toe Office of Defense Transportation that new buses would not be released for use in any com munity which had not rearranged working Beneficial results were evident immediately after the plan became effective. Buses were less crowded during toe former peak periods and additional passengers were observed dur ing the off-peak tunes. Congestion in eleva tors and over-crowded conditions in restau rants during the usual 12:0(1 to 1 d)0 o'clock lunch hour were reduced because employees who s range* and tJ lunch Retail becam 9:00 a insteai afterra group: office of staj ient ti when than t 1:00 li In < considi of seb bus tr in the thoritx stood duldre ness d in the were i menial ior an* open a at3:3C which dosed dose a Whe veys w after h viable the eff stoat f ales mi genng enterm period sons di little i from 7 8:00 a increas vcssdi there 1 passenj a dear Ther since 1 kStreet and Highway Traffic Section 57 who started work earlier in the morning ar bus passengers, in both the morning and af ranged to have their lunch prior to 12:00 ternoon, have occurred during the off-peak ^ and those who started later changed their periods and it is obvious that if the staggered / lunch periods to 12:30 or 1:00 or even later. hours plan had not been adopted, the major Retail stores, also, benefited by the new hours portion of the increase in total bus passengers because by starting at 9:30 a. m. instead of would have developed during the peak periods 9:00 and dosing not earlier than 6:00 p. m. and bus facilities would have been over-taxed instead of at 5:30 there was more time in the at those times. Buses were being used, to afternoon for employees of other business capacity during the morning and afternoon groups to shop after their offices dosed. Many peak periods at the time of the original sur office workers have-found, since the adoption vey so it was essential that hours be stag of staggered hours, that it is more conven gered to prevent additional bus riding at ient to shop during the hew lunch, periods those times when the bus system could not when conditions in stores are less crowded carry greater loads. than they were during the former 12:00 to 1:00 lunch hour. This "before and after" check has proved of great value in measuring the actual effec In devdoping the staggered hours plan, tiveness of the original Houston plan and consideration was given to the rearrangement' it provides informati.winch is useful in of sduxd hours to reduce the demands for determining further readjustments of work bus transportation during the peak periods ing schedules which may be needed. It is an in the morning and afternoon. School au ticipated that when gas rationing becomes thorities agreed to the proposal to start effective in Houston, more people will use school later in the morning in' order, that bus transportation in traveling to and from children would not be riding buses when busi work. Bus facilities cannot be expanded be ness district employees were going to work cause of lack of equipment so a further in in the morning. In September school hours crease in bus riding during the peak periods were changed in accordance with recom must be prevented. This objective may be mendations of tiie staggered hours plan. Jun attained in two ways, through a further stag ior and senior high schools in Houston now gering of working hoars, and of shifts in open at 9:00 a. m. instead of 8:30 and dose industrial plants, and through group riding; at 3:30 p.m. instead of 3:00. Primary schools winch formerly opened at 9:00 a. m. and dosed at 3:00 p. m. now open at 9:30 and dose at 3:30. The Office of War Transportation and the 'Emergency Transport Committee in Houston are now co-operating with the bus company in solving mass transportation problems which When the* original staggered hours sur- - exist on certain bus routes and in the vicinity veys were conducted it was contemplated that of large xwar production plants. When the after hours were staggered it would be ad need arises for additional bus service to the visable to make similar surveys to ascertain business district other business classifications tite effectiveness of the plan, and determine may be requested to adopt revised working what farther adjustments in working sched hour schedules and additional surveys will be ules might be necessary. Advantages of stag conducted .from time to time to ascertain the gering hours are evident Bus passengers changes which should be made. entering the business district in the morning period from 6:30 to 9:30 increased 5,757 per sons during the four months period yet very little increase is noted at the former peak from 7:30 to 7:45 a. m. and from 7:45 to 8:00 a. m. In the afternoon, although the increase in bus passengers leaving the busi ness district is not as great as in the morning, there has been only a small increase in bus passengers.between 5:15 and 5:30 p. m. and a decrease is evident between 5:30 and 5:45. Inasmuch as the staggering of hours is proring successful in conserving mass trans portation, it is hoped that this method of spreading demands for transportation over greater periods of time will remain in use after the war. Reductions in mass transpor tation and individual automobile traffic dur ing peak periods of the morning and after-, noon also, have eliminated traffic congestion and delays to a great extent so the^American public doubtless will approve the' adoption of ' There has been more uniform use of buses staggered working hours* since hours were staggered. Increases in basis in the future. 58 31st National Safety Congress WEDNESDAY MORNING SESSION October 28, 1942 GROUP SESSION ON PUBLIC SAFETY EDUCATION Presiding:--Paul F. Hill, Executive Secy, Highway Traffic Advisory Committee, Des Moines, la. Traffic Safety Education Through the Civilian Defense Program By ROY S. MARSHALL Sunset Outdoor Advertising Co, Seattle, Washington Tins morning we are gathered here in a small group to discuss one phase of this pic ture--namely "how safety education can tie into the civilian defense activities and other war efforts" and thereby greatly accentuate the results accomplished from safety educa tion. % out tests and barrage balloons to protect plants, Seattle has had its share of the uniop. difficulty, the 35-honr week, difficulty in ar ranging staggered hours with muon officials, black-outs, limited transit facilities, a high shipyard accident rate as well as traffic and other industrial accidents. Because of the fact that Seattle is one of the critical war-industry areas, as well as Plenty of Problems being actually the closest territory in the United States proper to the Pacific War area --and the fact that I am naturally more fa miliar with my home-city problems, I want to briefly give you that picture. Seattie's population has suddenly increased from 365,000 to a conservative estimate of 530,000. At the last officially released data, war contracts in this section amounted to over $1,800,000,000. Seattle is one of the first four in per capita appropriation of defense dollars. The state of Washington is in the first two states. Now this boom of activity has created plenty of problems, with many of which yon and your various committees are familiar. Traffic congestion and bottle-necks; an over. burdened transit system; thousands of plane plant employees suddenly concentrated in a congested spot resulting in problems of exits, mass transportation, pooling of cars, car'rid-' ers; lade of materials to make street improW ments (particularly one major overhead proj ect to the shipyard area); inadequate police and equipment;'tire shortages and gas ration This has attracted many new types of in ing-all creating a hub-bub of confusion until dustry and many new types of workers. We many conflicting interests and attempts to find have airplane manufacturing, tank manufac solution. turing, ship building--all of strategic importance to the carrying on of die war . effort Bremerton, Tacoma, .Camp Lewis,' in die immediate vicinity represent die largest navy yard in die Pacific area, a tremeftdous ship , Now, naturally in such a maze of problems, the enforcement program is important. Engi neering improvements are vital. But my pur pose this morning is to discuss the place that building center, and one of die largest army troop training camps. Seattle is the port of public education can and must play in such a picture. Under these Conditions the public embarkation for Alaska, which means tre is apt to become lax in its observance of laws," mendous traffic in manpower, war supplies and equipment in its courtesy to the other fdlow--the public sees confusion and begins to ride the over worked public official and conscientious citi As a result of the early conversion of this zen who is trying to do a: job.. One of the, area intcfall this war atmosphere, Seattle has biggest proWems that we have tact in Seattle been imbued with thejvar spirit to a marked is the ont-Hpf-towner--perhaps a young fdlow degTee. The first major-city to attempt black- who is making his first real money. He has \ ~v . ; a ne\ spend the n a goo Itj traffic job tl of a ] of ms this li best i some be sol Seattl of hot Des books defens manaf intere mg--s effort, ohcom every dons ouqr, waste Out Using Tt wai attain* theme It was trial g , Sqtan in a c one ei replica at tiie Motmt flags a day at pres band i retnrni newsjK boards tution- Behi --the . uieaget 3 'C7 Street and Highway Traffic Section a new car. He has money in his pocket to spend. His regard for taw and the rules of die road becomes incidental 'and he is out for stantly set until the latest high was a million three hundred thousand dollars of sales lit war bonds on one noon program! a good time. Need of Education Now, I want to repeat.the lesson of what was accomplished in this effort.' First of all .it brought a. unity of purpose for all of die It is the job of die educational side of die traffic picture to carry on a public educational job that will arouse such public acceptance of a proper regard of safety or conservation of manpower mid materials that will offset this laxity and carelessness. I believe I can best illustrate how this can be done--how some of the problems that must be met can be solved--by carrying on my illustration of Seattle and telling you a little of tile story people of Seattle, crystallized and expressed in Victory Square. Every campaign of any importance in the war effort started a kick off in Victory Square, which meantnewspaper publicity, radio advertising, prestige and impact behind its story. Results? Bond sales are high. Army and Navy recruiting is .` at the top of the list in per capita.. A spirit of cooperation between capital, labor and man agement was fostered. of how our "Victory Square" functioned. This has been a community job. As in the Despite the fact of full and bulging pocketbooks the bond sales were lagging--civilian defense needed stimulation--labor, capital and management were all looking to their selfish interests--transportation problems were, loom promotion of patriotism and war bonds, the safety educational job in the final analysis boils down to the local community. Where a dean-cut, over-all job is done locally, you will find safety. ing--and many frictions existed impeding war effort^ Eagerly striking out.to meet these oncoming problems were patriotic citizens of every rank and interest with many duplica tions of efforts resulting in friction, jeal ousy, etc. And yet the ultimate aim of all wa*/t'oj w`ards one thing--to win the war! Victory Square When U comes down to doing the job in the public education field, -1 would like to outline a few essential points that should be a guiding factor in any local safety educa tional program-- 1- Develop a unified program after deter mining your specific problems. cry Out of tins confusion the Seattle Adver tising and. Sales Club was asked to do a job. Ft was felt that a unity of purpose must be 2. Keep the program simple. 3. Enlist key people in strong organizations. attained. A. concentration on one over-all theme to arouse public spirit and patriotism. It was a job for advertising. From this orig inal group sprang the idea of-a "Victory Square." A wide street, a Mode long, located 4. Get the advice of the local advertising group; 5. Eliminate "who gets the credit" The Safety Council should be the coordinator. in a downtown central business section--at Give the other fellow a boost every time you one end a stage erected in the form of a: can. replica of the front porch of Montkdlo and 6. Tk in with the national program wher at tiie other end a repika of the Washington ever possible. Monument--with appropriate decorations of flags and color, provides the setting. Every 7. Keep your eye on the ball. day at noon, for one hour a stirring program 8. Thoroughly acquaint all''.organizations is presented augmented by army mid navy and parties'interested'with your program. band music, entertainers, speakers, singers, returning war heroes--publicized in the daffy newspapers, over the radio and on the lullboards--all have gone to make tins an insti tution--"Victory Square." Because the saving of. manpower and ma terial is so vitally necessary to tire winning of the. war, the tie-in with the necessity for con servation of manpower and material gives safety an opportunity to put over many basic Behind all of this is a crystallized objective safety principles it might otherwise. tala r --the sale of defense bonds.. From a very yean to accomplish. It is an important war S meager start, new records have been con job to facilitate the flow of traffic and trans- X '.Aj3Sg - 60 31st National Safety Congress portation and to conserve manpower and ma terials--the recognition of this by the powers guiding the destinies of this country in its war effort is going to bring about an over all national program that is now in the process of preparation by the Advertising . Council, Inc. to be paid for and sponsored by several of the major industries most inter ested. This will be an over-all project to ward the gaining of public acceptance. It is up to the local Councils to take advantage of this national effort---"to grab the ball and run." Out of this national emergency can grow a greater appreciation and public ac ceptance of the many little things that go to make up a resultful safety program.. With a little weight behind the power of public education, great strides should be made in our safety promotional effort that will gain public acceptance and bring lasting good re sults for safety consciousness. Tt tion. drive a sa drivt safel; sion. drive there drive moni heart . other Training die Civilian Defense Worker in Safety and news They Conservation By WALTER D. LADD sped but t they Secretary, St Joseph Safety Council, St Joseph, Mo. Tw For years we have preached safety, be I If the American people today destroyed cause we could find audiences to preach to. ^vety flat-edged ash-tray in the country-- We have failed largely to teach safety, be and there are millions of them--the loss cause we could not find audiences, or pupils, figured at their retail value probably would to teach. I do not mean to say that the be less than the'fire losses for one'week due r preaching wasn't worth while. We still need to fires caused by their existence and use. preaching. And for years safety needed to be preached, because it had comparatively few-converts. We still need more converts, but we do have thousands--yes, millions--of people who BELIEVE in safety today. Why, then, do we not get better results? A motorist is driving along a highway at 40 miles an hour, engaged in conversation with a friend. He becomes so engrossed that he is not attentive to'hls driving, and edges over to the right, to that his right wheels are on the shoulder. He suddenly becomes There is no mystery about it. Analyze the aware of this fact and turns his front wheels average- accident, or a thousand of them. to the left to get back on the slab, without The real reason is ignorance .on the part of slackening speed. In fact, he accelerates his an individual or individuals. speed to 45 or 50.,-miles an hour, without realizing it, in his anxiety to correct his A child burns to death and a dwelling is error. Two. seconds later he and his friend, the n bile, i aimet have mon i safety have itn^f thensired Tbt great teach lieve have the ii the a appall destroyed, and we say. the cause was care lessness with a cigaret. A person placed a lighted cigaret in an ash-tray of the com mon, fiat-edged type, and went away and left it there. That cigaret burned down un til the portion extending outside the ash-tray was heavier than the rest of it, and then, it fell outside the ash-tray and set fire to the house. if not too seriously injured, are trying to crawl out of the car, which is on its side in the ditch at the left side of tfae.road, a few hundred feet beyond the place where it first got off the slab. He was not careless'. The accident wasn't! due to carelessness. It was due to ignorance. He didn't know enough about.driving an automobile. He never had received any for We Jugs i gram, organ outset their the st Pearl contre Ladies and gentlemen, that was not care mal instruction in driving. Like millions of dent t lessness. That was ignorance. A person other Americans who don't know enough you t properly instructed in the fundamentals of about driving, he thought he< was a good citizei accident'and fire prevention would have driver, and he intended:to be a good driver, in thl. known better than to leave a lighted dgaret and above all, be prided himself on bring a: ing w in such a position. Such a person would have careful driver. But there is a lot of differ-! of the known better than to have such an ash-tray ence between a careful driver and a com-; on the premises. petent or good-driver. Mai thonsi Street and Highway Traffic Section 61 I. Two tars crash at a city street intersec safety engineering, to provide competent tion. Eich driver blames the other. Both safety supervision for the mills and factories drivers actually believe they were driving in engaged in the work of producing war ma a safe, competent manner; actually, both terials. The traffic accident prevention pro drivers were driving improperly and un gram of the country was swiftly overhauled safely, or there would have been no colli' to make it more effective, if possible, under son. If either driver had known HOW to wartime conditions. - drive safely, and had used that knowledge, there would have been no accident Both And, as I have said, eager to serve,-the drivers bad seen many safety posters, ad various safety organizations offered their monishing them to -drive safely. They had services, but usually to, no avail. It wasn't heard safety talks at luncheon clubs and at that anyone wanted to keep them out of the other places. They had been urged by their home front war effort It was just that the newspapers and the radio to drive safely. folks organizing Civilian Defense did not They, may even have seen somewhere some know how or why to use their services! Many specific instructions on HOW to drive safely, of the community leaders of Civilian Defense but they skimmed'over them, assuming that knew little of safety-except for such admoni they were for the other fellow, not for them. tions as "Be Careful" and "Drive Carefully," and they did not see what safety had to do Twenty minutes competent instruction on with the war effort, or What useful place it the mechanics of stopping a moving automo could have, in their program. Let me say bile, and its relation to intersection accidents, here that there were notable exceptions to aimol directly at those two individuals, would this, but this lack of understanding and con have prevented that collision. It is die com sequent unwillingness to incorporate safety mon experience of an instructor of classes in instruction or safety service in the Gvilian safety techniques, that students confess they Defense program, was the common exper have been doing common, everyday things ience. unsafely for years, without ever realizing their danger. Such instruction gets the de sired results. In detailing this sitnation, I do not wish to place blame for it It never has been pos sible in the past, as far as I know, to popu The Civilian Defense program gives the larize safety instruction classes for the gen greatest opportunity ever presented for the eral public. And because such instruction has teaching of safety, and at the same time I be not been widespread, we have few persons lieve it has shown some of us how far we who know anything about it or who under have missed the mark in our efforts to reach stand its value, and furthermore, we have the individual who causes or is involved in very, very few persons'who can act as in the millions of accidents which make up our structors. appalling annual national total. In my home town of 80,000 persons, the We received the impact of our shortcom ings very early in the Civilian Defense pro gram. In communities where there are safety safety council was fortunate in securing the willing co-operation of the Office of Civilian Defense. organizations, those organizations at the very outset of Civilian Defense hastened to offer their services. Governmental authorities at the start of the defence program, long before Pearl Harbor, recognized the necessity for controlling accidents and fires. Our Presi dent even issued the proclamation with which After some mistakes and false starts, a 12-hour course., in what we designated as "Personal Safety" was set up, and the Office of Gvilian Defense listed it along with first aid, home nursing, nutrition, motor corps, and other study subjects. you are all familiar, calling "upon every In a period of six months a few more than dtizen, in public or private capacity, to enlist 300 persons enrolled for this-course, and 153 in this campaign and do his part in prevent actually-,completed the course and received ing wastage of human and material resources certificates. In that same time nearly 2,(500 of the Nation through accidents." persons enrolled for first aid, and more than 1,200 completed their first aid courses. Machinery was set in motion to train some thousands of persons in a short course in Heaven only knows what we would have 62 31st National Safety Congress done if 2,000 had enrolled for our personal He had written more experienced friends in tral safety course. We had only one instructor, for help, only to receive the reply that he. home t whereas there were 34 first aid instructors. was pioneering and wishing , him luck. And across Thirty-six more first aid instructors have would he let them know how he got along "Defen been added since then/and we still have one --maybe he had something worth while. "Are safety instructor. Our course was an en Use SI larged and more detailed version of traffic Imagine his surprise when the first class can be iil safety instruction we had been giving to high school seniors for several years, idus an enlargement of a home safety lecture which we also had used for some time, plus the fundamentals of fire prevention and.fire pro turned out to be a success. Practically the entire group finished the course, and those who had come expecting to be bored, re mained to take a lively interest in learning the techniques of staying alive and whole in Hei gave i papers argumi tection, with information about probable this dangerous world in which we live. Yon blackout procedure and the handling 0f in cendiary bombs thrown in. The next class went along more smoothly, as our instructor gained confidence and found of letti nay ir We thought along these lines in arranging the course: The average individual today is exposed to certain hazards, and he is the victim of certain types of accidents. Let's sec what those hazards are^ and then provide in what to give more emphasis to, methods to avoid, and so forth. And the.next class, and the next went along better and better, until the course became a routine. _ but yc ^pupil's little l saw in ago: this course, so far as we can, the knowledge This instructor learned something he had ~ of the hazards and of how to avoid or deal even doubted himself--that safety instruction Hereli with , them, that will enable that individual could be made interesting to the average per Who to recognize them and keep himself from son. JBut 'he learned that it was no easy job becoming a casualty. to make it interesting. He never did any He wa harder work in Ins life. He found that it r We teach die class how to have an acci was a subject that could not be presented Bnti dent When they know how these accidents while sitting in a chair at adesk. He found We are caused, they can work backward, so to he had to be a showman. He had to rise difficult speak, and know how to prevent or avoid every, device he could find to lend action and populai diem. ^^ interest to the course. He had to have as classes, When the first class assembled, we started the job with trepidation. Half .of die class plainly had gone to the Civilian Defense Of modi change of pace , as a good baseball pitcher, and produce almost as much action as a three-ring arcus. hood li We ex essarilj actual fice and registered in a burst of patriotic fervor, seeking to take a swing at Hilter or the Japs, and here they found themselves in a safety class, faced by an instructor whom He found you couldn't just tell people that they should have a mat in their bath tubs. You had to have a bathtub mat right there and pass it around for them to handle these p or fact know s they had known for some years as a safety and inspect. You couldn't just tell them a crank--or maybe "nut" was the word. An lighted dgaret would, as the man on the In o was st other 25 per cent had enrolled for the course radio says, "almost invariably" fatt on the because it -looked like~aneasy Gvilian De outride of a flat-edged ash-tray and set fire fense job todo, but -they- didn't think they to something. You had to prove it. would learn anything valuable or would even - interser ing the hood 1 installe be interested. The remaining 25 per cent He found that (harts with diagrams .and church knew what it was all about, and were-ready pictures^and startling facts displayed On them, deroanc and willing to get some good out of it kept more titan one pupil from falling asleep fact, ti as he dealt with the minimum offarts and would i To further scramble the psychology of the figures necessary to present such a subject. signals situation, die instructor knew he was engaged So be used charts. When he didn't have a fatal ai in an experiment that might turn into a fizzle. chart that stated the purpose, he used die He was more or less organizing his course blackboard, with the same effect as he went, feeling his way, trying to win the interest of the doubting ones, and do a worth- . He found that the sound-slide pictures of while job. He never had had such a chance , the National Safety Council which his. office before and he didn't want to fumble it had in its library, emphasized many a point It ha a groo He ted those < installe in traffic and home safety so that it went situation before he attended the class, but home after he probably lad failed to get it that since then he bad explained it to many across by just telling it Such pictures as of his neighbors. Public opinion in that "Defensive Driving" "Safe All Around," neighborhood was changed. "Are Your Feet Killing You?" and "No ' Use Skidding," tell die story better than it can be told with words. Some of the fundamentals of traffic engi neering were explained to die classes. Pos sibly yon would be surprised to learn' how He invited and encouraged discussion. He many otherwise intelligent, well-informed gave written tests, then reviewed die test persons believe that a stop sign possesses papers with the class and had some beautiful some magic property that will prevent acci arguments about the answers. dents occurring within, a considerable dis You can talk for ten minutes on the merits of letting die cither fellow have die right-ofway in traffic rather than riding a wreck, but yon will put the idea firmly in your -pupil's head better by rattling off snch a tance Of its location, or who think of stop- and-go signals as a cure-all for the traffic ills of a community, or who believe one-hour limited parking will make the street wider for moving traffic. ... r>. little bit of doggerel as this, which I first . Persons, in the first class talked to their saw in a Chicago newspaper twenty years ` friends and got some of them' interested, and ago: thus helped supply pupils for the classes that Here lie die bones of William Jay followed. O Who died defending his right-of-way. He was right, dead right, as he sped along. But he's just as dead as if he'd been wrong. We took the opportunity to explain the difficulties of law enforcement and to try to popularize engineering procedures with these classes, since they contained many neighborhood leaders, from various- parts of the city. ) We explained that law observance most nec essarily be largely voluntary and we took . actnalcase histories of bad accidents, which these people knew about, and explained causes or factors in these cases, which they did not know about In one such accident a ten-year old boy was strode by a car and killed near a busy intersection in a poor neighborhood. Follow ing the accident die people in that neighbor hood had demanded that traffic signals be installed at that corner, -and die pastor of a church there bad led die protest when the demand was tamed down. As a matter of. fact the conditions were snch that signals would not work'properly at that location, and signals would have had no bearing on the fatal accident It happened that in one of our classes was a grocer who was located near that corner. He told me later that he had been one of those dissatisfied' because signals were not installed; that he never had understood the The safety council was invited to present a traffic safety course for some eighty auxil iary police sergeants, and of course theirivir tation was accepted. These men were scat-, tered over much of the'dty, and they^mtuni gave some instructions to their squa&T'of anxiliary0police. We hope to have classes for other groups of auxiliary police and air raid wardens. Some school teachers were among those enrolled in the early classes, and they talked to other teachers, resulting in a request for safety instruction classes for teachers. About eighty teachers have enrolled in snch classes. These classes will be of far-reaching value, since one of the great .weaknesses of safety teaching in the schools is the lack of knowl edge of the subject on the part of the teach ers. We hope this will develop into some sort or regular training course for teachers. A by-product of the safety instruction class for auxiliary police sergeants was a safety school for traffic law violators, which has been very successful. It happened that the city prosecutor of traffic cases was also an auxiliary police sergeant, arid he was a mem ber of the class. He showed a lively interest in the subject, although he never before had shown much interest in traffic safety efforts in the city. After the course, he continued to show interest, ^attended a National Safety Council regional conference of traffic court, judges and prosecutors at Kansas City, and 64 31st National Safety Congress then asked the safety council to provide in struction for violators' classes. Thus, through die original Civilian Defense course we have been able to reach those persons who need traffic instruction most--the speeders and reckless and drunken drivers. And I may say here that their reception of such instruc tion has been as gratifying as that of any group with which we have dealt Another fine opportunity for safety in struction presented itself when the' Civilian Defense drivers corps was to be organized. The safety council's instructor was given the task of organizing and training the drivers' corps, which is one of the protective units of Civilian Defense, ranking with the air raid wardens, auxiliary police and auxiliary fire men. Its job is to deliver persons, equipment and messages wherever they are required. These drivers must arrive at their destina tions without accident under all conditions if they are to do their job properly. So if they are properly trained, they certainly should be trained, in traffic safety. Some six or seven hours of traffic safety instruction is incorporated in the training course we are using, winch also includes convoy driving, blackout driving, gas defense, emergency minor road repairs, map reading and first aid. The drivers' corps training thus far has given os 100 students of safety, and we shall have 250 more. These people are responsible citizens scattered among all wards of die city, who will influence public opinion' for safety in. the fture. Altogether, including our senior high school classes, we have had more than 900 persons in safety classes in .St. Joseph in the first nine months of this year. These people have had from three to twelve hours of instruction in traffic and home safety, fire prevention and protection and miscellaneous accident pre vention.I I want to say a word about this instruction. It consists for die most part of analyzing the common types of accidents. We try to explain the relationship of speed on the street and highway and accidents, of a loose throw rug and a bad fell, of dry cleaning with gaso line in the kitchen or basement and a tragic explosion and fire. This can be done in a most convincing manner, because all die acci dents in any field generally may be classified ' in a comparatively few patterns. The same things happen over and over again, with the same causes and the same results. It is only necessary to present these patterns realis-'- tically and it possible, dramatically. The stu dent will recognize enough of the picture to accept the rest of it. O I do not believe too much time should be spent on behavior, because it cannot be taught The results of unsafe behavior will be apparent if die mechanics of the accidents are dearly presented. The effects of inatten tion, drinking, discourtesy and fatigue should be mentioned,' but not stressed too much. These factors will appear from time to .time in a natural way as your story of safe tiring is unfolded. What we have bees able to do in St Joseph can be done anywhere. It is hard to get started at safety education along this line. We are all prone to shoot at big figures. We want to educate a thousand or ten thousand or a hundred thousand persons, but not just twenty or five, or one. We lose sight of the Importance of die individual. May I suggest that we will soon reach our limit in effective safety education unless we train oar sights down to the individual. Remember that individuals, not crowds, of people; are killed and injured in-accidents. One at a time; here and there, over the coun try, the total adds up to hundreds in a day. Remember that individuals, not groups of persons, cause die accidents and the fires. So we must reach die individual if we are to successfully educate die public in safety. We must do as die Red Cross has done with its first aid work and as it is; beginning to do in home and form safety work--edu cate die people in small groups. Indeed, we have found that more than twenty-five per sons in a class is too many. Twenty is better. Fifty or a hundred at a time is difficult and less effective. We must provide competent instructors tb do this work--thousands of diem. They must be well trained and well equipped. We must go into the homes where we can, into the schools, into die dobs and churches, wher ever the people are, and teach them. All this mil cost money, and it will be an or ganization task worthy of the best brains and all the energy in die safety movement Tb denis plicat ventk the v overli probli acridc with t from to on of. de with the b sttbon war, thefc On traffic tbe> The ! Street and Higi Traffic Section 65 WEDNESDAY MORNING SESSION October 28, 1942 GROUP SESSION FOR CITY AND STATE POLICE TRAFFIC CONTROL PROBLEMS IN WAR PRODUCTION AREAS Presiding:--Lt. G L. Lycan, Traffic Div., Decatur Police Dept, Decatur, 111. The Place of Traffic Safety in War Time By HAROLD ANDERSON Chief of Police, Kmm City, Mo. At a war measure, a rationing program has been put into effect Because of this, the volume of Vehicular traffic has decreased and this decrease has been reflected in a drop in the total number of accidents. Unfortunately some enforcement agencies have interpreted tins accident decrease to mean that-they can now relax their traffic safety program, reduce the number of officers assigned to enforcement discontinue traffic violators' schools, reduce publidty and disfnntiiiiit stqdW of high acddcut intersec tions. Actually, tbe opposite attitude should be Now we are facing a different situation; an immeasurably more serious situation. The larger proportion of these injury acci dents conld have been prevented by the ap plication of known methodsof accident pre vention. We police, in our attempts to aid the war--effort must not be deceived into overlooking die importance of the accident -problem simply because an excessively high accident rate is declining. We police, faced with die new and vital problems of protection from espionage and sabotage, most not forget to combat also an equally important source of destruction simply because it has been with us for so lohg. We must not adopt the belief that the.acadent problem has been subordinated to other police problems by tbe war, when actually it'has beenbrought to did fore. ^ One apparent change in the character of traffic is-the dange;in die.distribution fay die boor of the. day and die day of die week. The large number of workers i engaged in war production are on a twenty-four hour a day basis and on a-seven day week.. Men. . who used to go to work at eight o'clock in the morning are now going to work at four Y in the afternoon or at midnight Factories: that used to dose Friday night or Saturday noon never dose their doors. Volume in some arras 1m decreased, in others increased, and in all cases the distribution by hour iof the day and d^afthe week has been nfodifiedL - - -'Y 'f A second change "in the- traffic picture should also receive constant study. Tbetraffice flow picture, and the resulting accident picture has changed in many areas. Tins change has been caused by tbe of large defense plants and accompanying housing projects. In some areas die flow has only been modified, in others, completely altered. We must not believe that we know what these changes are and what to. do about them until we have made careful engi neering studies of the new situation. Flow maps and accident spot .maps should be maintained constantly and changes should be made as die traffic experience of accident experience indicate that they are necessary. These maps wfll allow changes to be made,, in enforcement; engineering and education as soon as new problems appear. New Problems _ A study of the accident^ experience in past several months will show that new problems have presented themsd' One that has never been given die. attention it deserves is fatigue. We are all familiar 66 31st National Safety Congress with the difficulty of getting proper rest tage of their out-of-state license. When an after working from midnight to eight or officer fads tint tins is being done, these from four to twelve. Large numbers of war people should receive the same treatment as workers are-now doing this and large num local violators. ' ., bers of them are driving, often a number of miles, to and from work. Coupled with tins Owners of motor equipment are faced is a noticeable tendency on the part of these with uncertainty as to how long and how workers to not only work hard, but to play much they can use this equipment Those hard. The resulting fatigue causes many ac drivers whose mileage is already greatly cidents and contributes, to many more. restricted bygasj^Ltioning and those drivers who know tbattbe usfevof their car will ter Fatigue is hard to define, hard to observe minate with thelife of their tires are prone and consequently difficult to. control. Ob to neglect the conditio? of their car. If the viously, we cannot arrest a man for driving brakes need adjustment or repair, they are while fatigued, but we can make arrests when likely to say, "WeH, the brakes will last as accidents occur and fatigue., has been a pri long as the tires," and so drive with the car mary or a contributing cause. We. should in an unsafe condition. never accept a driver's statement that be. went to sleep as a reasonable excuse for an There are recognized and widely used accident. But what about those fatigued methods of checking the condition of motor drivers who are only, potential accident haz vehicles. Many cities are operating well ards? There is not a great deal we can do. equipped inspection lanes. There.ire a num Occasionally an officer may see a driver ber of suitable, reasonably priced methods of wandering down the road on the borderline checking brakes, lights, steering, etc. -Many of going to sleep. Tins constitutes a real garages now have this equipment. Most bawd ami an arrest should be made.' Patrol cities have, ordinances tbat: allow for tire of streets'and highways will have some in police checking of motor equipment; if..such ` fluence as the mere presence of a police of ordinances do not exist, tbey can.be readily ficer has the effect of malting many drivers adopted from models set tip fay the National more attentive. . Safety GoondL With the proper ordinance, the police can then see. flat the available Education is of value in telling drivers of methods and equipment are pnt in use to the importance of the fatigue problem and keep unsafe vehfcles off of the street As with suggesting practical solutions. Such sug other enforcement programs, testing should gestions would include getting proper rest; be accompanied by an educational campaign changing drivers, parking safely and sleep in tiie newspapers and. other agencies ex ing, and similar devices. The contribution of plaining fle reason for the testing, tbe method engineering to this problem is the proper of testing,,etc. lighting of streets and highways, construc tion of routes that are not tiring to drive over and adequate signs and signals. The engi neering approach is sadly curtailed by the Particular attention should be paid to a shortage of material. possible general increase in speed. Unless enforcement is continued, at highlevel, there An additional important problem is the are several factors that may.lead to an in influx of workers to war production centers. crease in .speed and therefore to accidents. Their traffic difficulties have two main causes: A decrease in congestion will result in an unfamiliarity with local traffic regulations increase in speed. With less traffic, tiie and unfamiliarity with the geography of the chance for collision appears to be less. This dty. Both can result incongestioo and acci would be true if speed remained at tiie same dents. Drivers unfamiliar with the city will level, but tiie tendency is for each driver to unintentionally go through stop signs and assume that he Is tiie only driver^left; and signals or drive slowly along looking for therefore operate at a higher speed. Thus, street signs and forgetting their driving. A with fewer cars and increased speed, the. warning instead of an arrest should be used accident rate might remain the same or even in such cases. Of course; there will always increase in severity if not in the total num be a number of people flat will fake advan ber of accidents. C , Every Working times fl is no in would d outgrow driving! notice a lessemru keep tin forcema When war indi that if 1 be issue serious, lire, for very cor includes cr's lice cave gt if the v many o more to andbrin the turn delay'pi ticulariy tioo. While problem importai agement product! any .we3 aeddept have a or mag Natio into belt and col demand caused s the outi from su eet ares Street and Highway Traffic Section 67 Every city has a number of people now their workers. This is an excellent medium working in defense industry at two or-three in which to place a safety message, outline times the salary -they ever made before. It traffic regulations and ask for the coopera-' )fs no more than natural that these people tion of the workers. Most of these plants would develop a "big shot" complex. One have safety meetings at which they vrill be outgrowth of such a complex is fast, careless glad to give your department a chance to driving! Such persons will be the first to put across a message to their workers. The notice and take advantage of any laxity or safety engineers will be -happy to" cooperate lessening of enforcement. The only way to for they know that production is slowed as keep them in line is to not relax traffic en much by a man absent from work after a forcement. traffic injury, as by one absent because of "When it is necessary to arrest a worker in war industry for a traffic violation, I believe that if be is on his way to work he should an injury in tire plant Most of these plants . have safety bulletin boards, and they will be' glad to put up traffic safety posters. be issued a ticket unless the offense is very Pay-roll enclosures carrying a short mes- serious. I believe that this is a safe proced sage are of proven value, as are longer bul ure, for these workers are required to carry letins distributed to. the workers suggesting very complete identification, winch ordinarily alternate routesdand giving them the traffic indudes a picture, in addition .to theirririv- regulations in brief, concise form... er's license, draft registration, etc. We re ceive gooff cooperation from the employers if the worker foils to appear for coart. So many of these workers are riding two or more to a car, so that arresting the driver and bringing him to a station for booking plus . the time' often required to make bond may delay production for some time, more par ticularly if the worker occupies a key posi tron. O : Signs, signals, paint and many other things that we have regarded as essential are no longer available. We can at IeastOpartially solve this problem by two methods : Substi tution of materials and the change of loca tion of control-devices. We can substitute plywood or pressedwood for metal in signs, we can put them on wooden posts instead of steel and we can conserve our paint or use other types of paint by making markings on While'the war has presented new traffic the curb instead of the street ifod using problems, new opportunities for educating broken lines instead of solid. We can, after important groups are also present The man- adequate surveys, move many of otu^signs jagement said safety engineers of fire war and signals to intersections where they will production plants are glad to cooperate with be of greater value. /The .tendency in thfc any well planned method of attacking the past has been to put in too maty traffic con acddqit problem. Many of the large plants trol devices, and we should be able to dis have a daily, weekly or monthly newspaper cover a number whose value can be improved or magazine that is distributed to all of by moring. . .. Traffic Control Problems in War Production Areas - By COL. M. STANLEY GINN Missouri State Highway Patrol,;Jefferson City, Mo. !_. '.C National Defense projects were ushered came in private automobiles, and these com- into bring, with an escort of traffic congestion bined with the maty trucks used to transport and collisions that was unparalleled. The construction^materials, created a. congestion demand for labor, both skilled and unskilled, from which traffic collisions were inevitable.. caused a migration of workers not only from -^ the outlying sections of each state but also The fact that most of these-projects were from surrounding states to the defense proj- ^ in^areas away from the population centers ect areas. The majority of these laborers meant that there were no housing facilities -> 1 68 31st National Safsty Congrtss in their immediate vicinity, and this, too The probiem of bousingfacilities remains, played its part in the traffic control and acci and commoting is necessary, thoughou dent problem. Many , of the workers com a smaller scale Many of thecoostructioa muted up to thirty miles. On die overloaded workers stay on to become production work highways this meant early starts to work and ers, and after, the long period m commuting long trips home after, a hard day's work when in slow traffic^.they find inthe more open' tempers were shortand impatience was at its road the impulse to jpeed. This attitude is height The combination .of heavy .traffic and contagious and will spread tike wildfire to tired drivers, impatient and short of temper the other drivers, unlmofficerswbomean is dynamite. business are there to deter them. Hereagain While the problem of controlling ,the con struction phase of traffic is an enormous one, a careful watch must be kept over the more open "feeder roads." the problem of the serious accident partially solves itself. Congestion, prevails speed, and slow driving prevents fatalities. Thus the highly congested area, with carsJramper. to bumper, forms its own protection, if properly handled. 0. The receding traffic flow naturally, brings a drop in the number of collisions, but the collisions in every case are more serious because of the speed factor involved. At the same time the workers have more mooey than tiny haveeverhad before. They also have There is no secret formula for gaining and maintaining control of the traffic in these areas. The solution is ample. Get there first with sufficient men and equipment before construction starts. Use motorcycles for more freelime on their hands. Free time and money brings a search for amusement. This search leads them to the inns and taverns along the highway and the drinking driver problem reaches major proportions. patrolling--patrol cars cannot be maneuvered in dense traffic. I am not prepared to say what cadi indi vidual state is doing to combat traffic fatality Use cars or hades equipped with public toll in these areas,; but since it is pnrdy address systems.; Spot them at intersections. a police problem--there is no longer time for Their value is inestimable in keeping the ears the long term part that-education plays in in line. Keep the came ra their own traffic safety, nor is there time or mooey to build line. Allow no passing. It is-pext to impos new roads to combat the problem through sible to get bade into the unbr^een lme once . engineering--it most be fought with the only a car pulls oat Take every advantage of the flexible weapon at hand- enforcement fact that speed is slow. Put rigid patrol and strict enforcement into effect on the "feeder roads," for this is where the serious accidents occur. The volume of arrests must soar to new. hdgbts until it reaches apomt wbdeit vriO smother the fatality peak, and cause down ward trend. Arrests alone are not enough There are various methods of handling Punishment must be meted out through fines, dense traffic. The prime requisite is to get jail sentences, and low of drivers' licenses. there first--formulate a plan and be ready to Every means of justice most be used. ^ put it into effect when the traffic .arrives. By doing this, the contact is made with the Here again the cars and trucks equipped first workers and their impression of your with public address equipment will be a valu control methods will be carried on. to sub-, able asset .Tbty should be used dose to the sequent workers as they arrive. Thus the plants during shift changes, so that the work value of enforcement is enhanced, by the ers cotdd be inform^ as to what will and "word of mouth" education carried on from will not be countenanced by toe traffic en worker to worker. forcement officers. The use of iradi equip* Tment. demands: a great t*at of .thought and The Production Period care, since raying the wrong things or even the right thing in the wrong way over these With the opening of tKb production period, loud speakers, gives it anjnfinite capadty the volume of traffic drops--not bade to nor for making enemies. The statements made mal--but enough that speed again becomes a over them should not be toorblunt They factor in every collision that occurs. should embody both politeness and firmness. Street atu} Highway Traffic Section maiSd.*pnafieg_chut. dschoinftsiddae_rna_gt_ieorn amsinthte.b' ew__og_irvk_ee_n_rsAto,leathveing are anxious to get home and most of those conungtoworichave waited until the last gporoojdec_dtesa. l*Iotfiastheeaasryeat.osusr*eroeu-.nt*idteinfmgealatfhe' ecydeoaff`erra.ote. tempting to enforce strictly tbelaw in one smalfarea-and being lax ih the snrroundhyr cany die" stamp of approval, not only from loa^as aotonkrtiTetransp^don u essdniat the patiee^Jbut from the projecutors and the . But I recommend "selective enforcement" as judges, and the program must include a. a, weapon to combat them. ByCAPT.C.J. SANDERS Nebraska Safety Patrol, Lincoln, Nebr. Traffic enforcement in defense areas was another dutyadded to the manydoties of the Nebraska Safety Patrol when the national defemw program was started. TUt wiis a new experience as most td the -Nebraska traffic in die past had been rural traffic The first problem was the handling of traffic during die construction of the Martin bomber plant, adudi was constructed *t Fort Crook. Access to tim plant was .-ftom U. S. Highway Nd ?$, which is a two4ane highway and capable id handling just the normal, flow of traffic; The Nebraska Traffic. Advis- orjr Committee to die War: Department, whah consists of the state engineer, assistant director of motor -vehicles, and the captarn of theNebraska Safety. Patrol,'. felt that dns increase id traffic would create a serious traffic, hazard. To meet this problent arrangements were made with die coonty commissioners, comity attorney, and coun: ty sheriff for die Patrol to take over the the drivers were given die choice of going to Court or spending; an. hour .looking at the speed limitsightIn one month 463 drivers chose to study the sign. In die saihe mootfa 93 arrests were made for driving under'the influence of alcohol, mtoaacatioo, assault and battery, etc. *rX~T Daring tbe construction period there were no fatalitiesandonly ohepersonal injury aeddent This is an exceptional record, when one considers die fact Hat there were as U^i a, twelve to fifteen thousand cars a davon that five-mile stretch of MgfawaylnthcpS during normal times, this bighwaybad one of the highest accident rates of anytogfaway n Nebraska. ' Since die completion of construction of this plant and. the new highway, enforcement is handled by four PaM officers and die county officers.`Traffic within the plant, of course, is bgadled by the plant officials. plant and a new. divided four-lane highway, gram, as other law enforcement agencies in ten members of dm Safety Patrol were sta- Nebraskaare foHowingthis enforcement pro- tiooed at Fort Crook to maintainastrict gram in die seven defense areas over Ne- enforcement'program.-A- central-office was .braska. Due to dm number of defense areai set up at die Fort, with cad- stations set up and the limited number of Patrolmen, itftas every utile between Fort Crook and Omaha. . been impossflde to set up-an enforcement pro- Witii tins call system and the highway toned giam as was followed at the Martin bomber for sped, die Patrol was able to bring about plant, but it has established its seif as a plan uniform and efficient enforcement ; for other agencies to follow. " Due to the feet that such a large number of driven were mopped forspeeding, it.was impossible to take, dim,'all into Court, so Plant officials in the otber plants have set up safety programs with our cooperation, which shotdd make enforcement cocnpara- . - o 70 31st National Safety Congress lively easy. Members of the Patrol and of the traffic engineering' department have con tacted the officials in all of the defense plants in Nebraska for die purpose of working out a uniform enforcement and safety program. Through this program, which consists of posters, bulletins, and illustrated lectures, there will be uniformity, not alone in en forcement, but also in the plants and courts. It must be remembered that many con tractors and laborers who have worked in the first defense plants became acquainted with the uniform traffic regulations and en forcement policies and have since moved to other defense plants, will be much easier to control and should be safer drivers. This will be true, not alone in Nebraska, but in any state. Cooperation with Plant Managers and Plant Protection Officials By CAPT. K. E. KLINE _ Purdue University, Lafayette, Ind. The city and state police have a definite responsibility of production in the war effort This responsibility divides itself into two general parts, the control of normal everyday flow of worker traffic to and from the plant and the introduction of emergency vehicles into the plant during periods of abnormal activity. If the local police can deliver the worker to the plant in the shortest time and in the best frame of mind, the ground work for a maximum day's work has been laid. If the driving worker is delayed and subjected to traffic annoyances he is not in tire proper frame of mind for maximum effort upon ar rival at the plant To illustrate, let us take the case of Joe Doak who has selected a route to and from his home to the plant Each day the traffic flow becomes a little slower. Finally Joe has to rearrange his schedule to leave earlier or be late getting to work. Joe becomes a tittle more irritated each day, and as he does his production potential drops off. Joe's prob lem could have been solved if he had been given information by the plant or local police as to some new route, less used, by which he could get to work. In this case the plant officials and the local police have not co operated in the production effort Normal Worker Traffic or more arteries through which tire plant can be reached, a map should Kfprepared show ing what they are. Tins map should show the approximate traffic using each artery. The map should be posted where the workers can examine.it and determine their best route. The police must make every worker ac quainted with all traffic laws and regulations which affect them on their way to arid from work. The police must not allow the plant officials to attempt o interfere with traffic enforcement They most never, attempt to protect a worker just because he works in a war plant Plant officials should arrange a meeting of all foremen with a representative of the local police so that the two groups can arrive at a meeting of minds on this subject of traf fic. Finally, the plant officials most coordi nate their traffic control efforts with those of. the local police. Emergency Vehicles * In tire case of-a fire or major disaster plans must be formulated to introduce the neces sary emergency vehicles into the plant as may be required. The police must confer with plant officials to determine the physical lay out of the plant, that is, the location, of all gates, roads that can be used, inside the plant, roads which cannot be used and other like ~ information. For proper cooperation the local police chief should meet with .the plant officials concerned and determine where the workers hi a particular plant live. If there are two The police must prepare emergency routes of approach to the plant, they must prepare necessary blockades to reserve these routes, and they should work out -an identification S' . " . .. t. .... schen vehic tunes ePn estab! police route all pi avails Lei plant .fire, a city < city i ing ti The i sistan They plant to bl< Pred It near!; only i highv more ing, 1 passe hand! move of ti* Street and Highway Traffic Section 71 scheme in order that the proper officials and vehicles can 'proceed to 'die plant at such times. c Proper means of communication must be established between die plant and adjacent police departments. A map of all emergency routes must be prepared. This will, also show all plant gates and plant roads. This map is available to both the plant and local police. Let us suppose an explosion occurs in the plant resulting in a fire which will require .fire, and police .assistance from the adjacent city departments. The plant police call the dty police mid fire departments by radio giv ing them die information about die incident The fire department decides to send the as sistant chief and two pumpers, to the fire. They know from die prepared map which plant gate to use. On die way it is necessary to blockade streets to keep the curions away. This is done' by the police'. The fire equipment arriyes at the plant gate. The firemen and' police are admitted to the idant on credentials which have already been prepared. The police and fire depart ments enter the plant and their information of the plant tells them what roads .to use to get to the incident * . -v . This illustrates some of the cooperation necessary to insure maximum production. To summarize: Go to the plant officials and get all of the information necessary to control their every day traffic, see that die information about traffic control gets to each plant worker, plan for every possible emergency!. Coordi nate these jdans with the plant, the fire de partment and any. other agencies concerned. WEDNESDAY NOON SESSION October 28, 1942 LUNCHEON-BUSINESS MEETING c. c Presiding:--Carl J. Rutland, Chairman, Gtizens Traffic Commission, Dallas, Texas Transportation After the War Prepared by 6. DONALD KENNEDY Commissioner, Michigan State. Highway Dept, Lansing, Mkh. - By LOYD B.REID O Deputy Commissioner, Michigan State Highway CornmissjoiyLansing, Mich. In 1938 the National Resources Planning port service was not significant,except as an Board made an estimate of die transporta indication of growlh. ' tion service performed by each type of sys tem--die railroads, die highways, the. inland waterways, the pipe lines, and die airways.. During the past year there have , been marked changes in the absolute and relative amounts of triiffic carried by the different It found that the. railroads accounted for transport systems. These-dnmgesjiave.re- nearly 70 per cent of all freight tonnage, but ' suited from the demands, ,,the conditions, and only right per cent of passenger traffic. The the restrictions of the .war. Except in the highways on the other hand, did only a little highway field, there Is. little exact data-of more than eight per cent of the freight haul their extent Here there is marked change ing, but 90 per cent of the transportation of in die volumes on some roads, as the products passengers. Pipelines and waterways each of war manufacturing, moves to ports of de handled, about 14 per cent of die ton-mile barkation. The great stock piles of parte are movement of freight. And, in 1938, die year on the trucks ,along the mad, rather fluui in of the estimate^ the airlines* share of trans one plate as we used to seethem. i 72 31st National Safety Congress Virtual closure of die Panama Canal to tion and industrial actiri^r wbich wfll inark commercial traffic and die submarine menace the postwar era. As to tibeir passenger busi- on the Atlantic and Gulf seabpardsr"haYe ness, it is open toquestionwhether theroads thrown an added freight load on thb-riul- wOI be able to hold more don their pre-war roads,' especially the transcontinental and sea proportion of tite traffie.; They probahly v^ board lines. The critical rubber situation has have to'continue .and extend recent improve reduced the amount of passenger travel cm ment policies 'to do that . - V-. the highways and transferred most at it to die railroads. Nevertheless, the possibility remains that a comhiratiocf^of improved serrice,wider- Thus the over-all transportation movement range travel, and wartime habits of train-rid- by rad, particularly psengcr traffic, lias ing, may significantly increase passenger traf been increased. In certain specific areas, how- fic on transcontinental rani routes. . ever. the freight tonnage generated by arma ment production is less than that formerly * . *. - `3 -- '* 'l'h There is. no such uncertainty as to whatthe produced by normal peacetime industry. air service will do. It will expand and it will carry a larger share erf the nation's movement . It is probable that in the case of the air COf both passengers and fragfrtThonsands ways, the heed for emergency deliveries has wfll fly for business and pleasure. resulted in more and hairier freight- loads. Excluding the movement in military piano, ; The course of the waris stimulating added it is difficult to judge how muchtotalair interest in. die. possibilities:dfair-transport - travel has increase. and is developing the means. Immense man- bers of planes and pilots will be available Future Possibilities when the fighting stops.' The enlargement of existing aur fields and the construction of In attempting to establish some basis for new ones for military purposes is proving r, estimating the shape of things to come in terminal facilities in all partsof die country. transportation, two factors most be given consideration. One is the degree of perma nency of these shifts of traffic between die. various services which have been induced by the war. The other is die probability of rad ical development and improvement.of. at least some of die transportation services in' the post-war period. V*'- Then as now, the routes of.major.travel will be the long hops between principal cities, but there will also be sui'mcrmsed 'titiltation of air service to mnote or inaccessible re creational and frontier, areas.. Fields Will be provided*and you cah fly to resort places to right where. sire goingto fish. The outcome of the war will strongly in fluence these factors in relation to certain Highway Transportation types of transport For instance, unless die ' TheseChanges hi the several ty^es of trans policy .of international^ aggressidhnis com portation are higfalyJiiiporUnt)in; themselves pletely discredited by decisive defeat' our vul and they will affect bqhway bind inimany nerable coastwise shipping routes, must be important rejects. But before attempting to changed or protected. They anil either be estimate theseeffect itwin be wdl tb opo- replaced with additional pipeline and railroad rider the conditions whichtbe jf' emer- facilities or be provided with improved inter gency is producing and roay prqdocein die coastal waterways. Victory will unquestion highway transportation field itself. Tbese^ ably increase our trade with Latin^Ameriea too^ will have a significant influence in dop and that in turn, .will probably mean an im ing the pattern of post-war motor: vehicle portant revival of shipping on the rivets traffic. : . j flowing down the central valley to the Gulf. Motorvehicle use isbeing-subjected to. Of much greater account in the general severe re&rictkmairiregulati^ transportation picture is die future of the are to come; The, supply of new^cars, and service of the airways and the railroads. Of tires for: civilian purchase is smdl and is the latter it can be said with some assurance strictfy.controlled;.,;To>consmW:ii^;:c4>4pr . that their freight tonnage will grow with meat, die speed:of travri u lari^ in moist the great expansion of public works construc parts of die country.: For die same.purpose^ gas.urn next;me vinde^- .Itlfia may be, present velopi n maintng themto ww;/eff< .dbtnbaf dtnerem evenwh time-wi coddev . of-cars'i We'su sore, of - Ihwire Ininyc thrsmix ^yoluims.i On dm. tiooedsi thefuff more Ids stpckvn oh.,-:. The q oTtbe'w of mass wm.no fapetiph otberty] -with .the ....... -1 Itj arisefre vaarjas must net place do in'our Noon the mov opened Thefaan and;mus tiod:tb:; our ecoc ficoltfes' timepro andresb .K Street and Section n r gas is^noir rationed In 17 eastern states and Tv' j ness will generate thettranspprtatidd-move- nert&ioiith rationing will- be*made nation- ment on which their opafatit::dcpeh& : :v: :.' :_:r -;s:.. This group does not-need :toi,be^ tojid dot Kthe;war is ofJong duration, as it well American drilizationhas adapted itselfyay nay (b^;we- shall; practically wear oat onr completely to die soc^^preudiia^^suid present^ cars.C Should^ a.'serious scarcity de- living habits which the motor vehidemakes vdop, means'will be found to tnake the re- possible.- Nevertheless,, it may be ofinterest mamtng ydudesavailahle to those wbo need to cite afew data which Slustrate how.great . than to perform essential , functions in'die. pur dependence on highway transportation w.;;effiA.-.':-^ conies, 'die service has become . distribatioabfcar ownership may be quite' diffdenf'from the earistingooe-Jn tinscas& When it fim. appeared-that the rdbber evenwben the war was over, a considerable shortage might be, acutesthe stats; highway thnewonldelapse before new prodnction department initiated a stofavof Michigan's could eveojrtart to restore die pre-warratio situation, partientariy tWsitaatioa of.its.de-; . of carsto people. - fedse. mdnStrie^:; m revert* tp:rubber-bonie traffic ft revealed dtat, dne t(> ladtofrail- We are already fading die braking vpnsr road development. and cartailmetil pf rail sore ofthe rtstrictKms'eren inareas sface those restrictions arestill lar^y vCIuntary- service :doripg tdie' larttwodecades, more than balfamillioripepplelrgeincoenniunities In iny. pwnirtatc traffic at tim: beginning d; -without other transportation"service than tiusmondiwas aboitt'SHr percentbdowtbe that provided ' by cars, tnicfcs and bases. ydume.forayear agor^itisstiUdedining. ;Neari^300,000moredqpendon motor vdnde On dtebatisof^ indie ra- for passenger transport. tioaedareas,we estimate that imposition of . the fuIT restriction win bring die drop to more tiandOpercenl. Depletion of reeling stockwoalti Cmy. redaction frbmthat point oiuy.' The questiooisbeingasked, "Howmnch of tbe wartime habits- of dhinddied driving, of mass-transpoilati^ even of mOdiigl' aftet peace comes?" W3T not.the. portion of die. transportation fimdmncrwbeiiig^^^ other tj^eSiOf transpoctatioii Jteod to remain -with them in thepost-war period? hi ether wardviias'not tbepeakof highway travel , passed?;;'"' "....'-A'- Onrstndy of Michigan industry ^showed die degree to wbichtitehigbways had been integrated into its. tnassproduction process, In 749 plants engaged in war productioi and employing 4H684woriKrs, itwasfoahd that 65'peir cent of dwtiyommg materials and 69 per,cent of tiieir outgoing,prodnets were . carried by tradC Of d*e: ' l^eh^pldynieht at tiar- dedjto die Job in their own car& It was estimated tb^t oadiis basis nofewertban635,000 men in Midugan industry tised and -were largely dependent on this form, of transpor tation. . Itseems to me that such questions can only. . These figures, do not malm dear how com- arisefrotn a.Iadcpf; pletdy onr cities aind-: sdnubian: areas have very ^ been ,laid oot with"depenrlenre cm the motor must necessaidyfiUint^ place thatihe automobile has madeforitself vdiide and.dte highvy. Th<^; ^ shqiw how rural life and raRd' schools have been moor scheme of lmnsarid rnaking aliving. transformed by and res^ustei to their rise But ponffidiDns in Midiigan ara: typeal of . No ooeneedstoehlargeondie function of diose indie restrfthecountrytbatyou are the movement df goods auid people in the able to fill hr the ddails of die'i&tiirc operationof onr.'b^ass'and.'so&l' ecmoiny. aigkn^~ amd;.-S^^ <inf~;iflbn: anjqhniaM^eritvis : andmostbe inapprtOT'matdydirertpropor- A.'-` : *. - ^ 5 Post-WnHi^htwayTranqMirtation . tion to dievinteiMa^r and fprpdoctiveriea of Jfnst as certehdy as.Ateeiricah:life and busi oar ecpoonnc sic^^ spiteoftiie dif- ness wffl.irestmte/di^ die % ficnltieswhich wfllattend oar return to peace-: present conflict is end^ &e most diaracter- tin.production, the transition will beroade. istic form of American, transportatibn will ag^n take nip diejob of f */!*# oSJ ' J"i?l ;m .- : J 1 74 31st National Safety Congress function. There may be growth in die amount The second factor is the matter of highway of the transportation load carried by other facilities. These war years are' in reality a services in die post-war days,; but eventually transition period -in highway development these increments will be found to be net addi For more than a generation we were prin tions to the total national movement of people cipally engaged in a process of adapting the and materials. old roads and streets for motor vehide use. Highway transportation plkys such a vital role in practically alt phases^of modern life, that its rehabilitation will bejkmong the very first tasks which will be undertaken on the day after the armistice. I eyen venture to predict that the replenishmctH of the supply The job was of immense proportions and it was done rapidly and well. But when it approached completion, it was evident that motor vehide traffic bad produced conditions which could no longer be met by mere adap tation.. of motor vehicles and the improvement and development of the streets and highways will be major factors, as they have been in the past, in stimulating our peacetime economy into renewed activity. We have been rethinking our problem for several years and have been preparing for the new task of building a highway system that is concaved in terms of modern, motor ized life. Roads like the Pennsylvania Turn Those of us who have the responsibility for highway traffic accommodation and protecturn will be faced with a tremendous post war job. It is not only that progress will be increasingly handicapped throughout the war period and that the accumulation of work will demand attention at its dose. It is possible to foresee serious and fundamental problems . pike will undoubtedly be developed. In the past we have been building roads to connect towns. That is largely over, and express ways are to be expected in the future. The fact that we have had to take time out to protect the free, democratic civilization on which that life rests, only means that ac complishment of the task is postponed. which wilt be vital to the successful resump tion of highway development. As a matter of fact, our experience in meeting the emergency requirements of wat Perhaps the question of first importance in considering the character of post-war traffic, is what the post-war automobile wilt be. If existing cars are practically worn out, manu facturers will have an open fidd for entirely new modds. If our enemies should lay down their arms has beat of value. When the time conies to resume the construction of the highways of the future, we will find ourselves better able to cope with the changes of traffic, the shifts in the industrial and population patterns, and the* need to replan our urban and rural com munities which the post-war period will bring. tomorrow, it is probable that most of our Highway travel will continue after the war automobile makers would resume production to be the form of transportation most inti of thefr 1942 models. But the best we can mately in touch with the life, of the people hope for is peace by the end of next year. The objective of post-war highway develop By that time it is likely* that existing dies ment must be to better fit it for its function and special tools will have gone to the scrap as the principal integrating force in our pile and new car designs will be ready to civic,'economic, social, and recreational ac come out of the experimental departments. tivities. Prendb Gty The i by man; problem, the beg The.dri accident successr are rde because* effort o era, it 1 problem The s cases; a thousiux the use shy of q by autos our stre persons increase to and i fuls of ] dent'T and will necessar thousand areas m transpor workers andiron job toda cause ac mit pub! take ove munition In the goods n coalmen r' ' ' i 1 : Street and Highway Tragic Section 75. WEDNESDAY AFTERNOON SESSION October 28, 1942 GENERAL SESSION Presiding:--W. G*aham Colz, Dir. of Safety, Metropolitan life Issuance Ox, New York Gty Handling, the Drinking Drim in Waritoe, By HARRYH.PORTBR 0 Chief Justice, The Mtmldpel Court of Evanston, IB. The drinking driver problem, considered armed forces and these, of necessity, have by many the Nation's No. I traffic safety, . been.replaced by comparatively inexperienced problem; has become much more acute since drivers who are none too stfe at normal. Add die beginning, of the present, emergency. to this inexperience, much longer hours of- The. drinking driver problem is still a night employment, with consequent fatigue, the accident matter, but by reason of the 24-bonr use of alcohol to relieve dm strain and. die. successive shifts in industry wherein workers . constant rush to deliver munitions of war in are released at all hours of die day, and a hurry and you have a new death dealing because of. the demands made by the. war . . combination. effort on the time of non-industrial work ers, It has become an important day time In the year 1941, the major portion , of problem also. which expired before Pearl Harbor, mind The strain of longer hours, and in many cases; a killing overtime pace, has caused .thousands of workers to seek relaxation in /die use of alcohol. This, added to die neces you, traffic accidents generally increased 17 per centover the year before while accidents involving drinking and driving increased 27 per cent. r sity of quick transportation to and from work With payrolls up 10 per cent in the month by automobile; is causing additional havoc on. of August, 1942, over the corresponding our streets and highways. The number of month in 1941 and with an infinite variety of persons lolled or Injured in these accidents is consumer goods no longer appearing on the increased, due to the necessity of group riding shrives of business, it is but natural that to and from die plants, whereby entire ear more money is available for die purchase of fuls of persons are injured in a single acci intoxicants than ever before; and-tins amount dent The exigencies of war have removed win increase as the war.progresscs hi spite of and will continue to remove considerable un heavier taxes and war bond purchases. necessary. traffic from the streets. However,' thousands of war plants have been built in areas not yet served by public systems of transportation and it is highly necessary for workers inthese plants tohe transported to and-from work: The automobile most do this job today and perhaps for the duration,.be cause acute material shortages will not per mit public, utilities to expand sufficiently to . In addition to this, demands made upon the enforcement groups to guard against sabot age and theenormous voluntary enlistments of police- officers in the- armed forces, have weakened those agencies by replacement .of experienced personnel with the inexperienced,' and thus our power to cope with the drinking driver has been depleted. take over this job at the expense of arms and munitions of war. Chemical Tests In the field of motor truck transportation of The formulation of a general program-to goods many of our most reliable and ride handle the emergency has already been ade commercial driven have been taken into die quately dealt with, and tills information has n v/Y-'.v WrtTj/ vr. 7-/V 76 31st National Safety Congress been transmitted to yon in printedform in therefore; forthejury'to rely upon the ex the pamphlet entitled "Intoxication and the perience of a man who does know. Traffic Accident Emergency" by your1 cbm-' mittee on Tests for Intoxication, under .the In the alternative; the jury may-.rtiy upon very able direction of its chairman, donor-' thelawofthe State--in otherwOrds;upon a able Don Stiver. Ugistative interpretation of the tert remits. The;jury wifi receive .tins, information from I shall not take your time to discuss the: the .instructions of the Court which will be program generally but rather anil confine . based upoo a statute of the type.we desire; arrest tfling insinc oae^.c ... ;No opmk count drbpf myself tins afternoon to the most recent mtfc of tiie Sub-committee, on Legislation beydHI by Doctor David G. Monroe of Northwestera University's^TrafBcIntiitiitc. ^ .r .- f v -; ;- . ........ A Typical Caae ^.typ5r^] trwnVyri: Jritiiig ;irai>'-in (inf age;j* vidnal "nnde Thee ir'Ahienam'iCfiate''v^''gi> off something Dr. Monroe has done a very carefrd piece; : like .tins.: of research ami is to be highly commended for both the qualify and'smeenty of-bis - . Fivcorsix wituesaes wUttake tiie standfor work. tiie State--dnefiy police officcni. and; these mayji Th fulfil oQ^fn It may perhaps be wdl to start at the begin ning aid fake up the matter of the necessity of legislation. To secure theb mtroduction into evidence the residts cti careftffiy. made scientific tests need' no legislative'action whatever. - For the present; therefore; our will testify that they,were present atthe time oftbe accident or inrthj^tely^^ ; that they observed .the.appearance; spwcli iai behaviorof titeTacpci^jrti^ to walk hu g^ was rolling: andstaggaing, bisicyes d3a^arjtf|da^ ; hit J>rh and ( dtiem purpose, in securing legislation distinctly is not tiie introduction in evidence of the test results in order to convict or acquit a given defendant or affect the outcome of a dv3 law suit _ rangW| pjc.mtngog^fnfft OK.JuDpfioac was ngon sented aH;'..tfc\0a^^ have commonly come to associate.with the condi tion known as drimkttmess; and tberefore it X ' The real purpose behind tiie legislation, at least for/the present is to tide over tiie pe riod daring winch the chemical tests are be coming rapidly popular tmtil a sufficient num is my opinion that; at suchtimeand place; tiie.accused was definitely tinder,tiie inffunite of intoxicating-Gquocs." The State is oedinirilydeprived oftbe ber of persons can be trained scientifically in force and .effect iff. tiK htinred/or darnaged their interpretation to provide the necessary. . party's testimony because ihewyinstance expert witnesses to roesGntxtiiis type of evi the accused has eitber settied or agreed to dence properly in ewrt/y settle for Ins damagesbefore trial. . I dare* say that; (at the present time; there inen.tne cmcncc coroci on me waim wnn Ha oqilr witnei sotiis are not more than 40 or 50 persons in the five or six or: tight or tea witnessefo sH of entire nation whose training and experience whom are friends of tiie accused ahdafl of ni wun tnese tests entities tnem to tut toe w&om were witn nnnooc-jHUi noor ocioce me N standjn a court of law as interpreters of the ^-aroidetit; they sawwhat be; had tbdrinkand, test remits. ' : bone it or oat, all be had todrihkwas At the present time I know of oojnan in tiie entire Gty of Chicago except Dr. The odore Friedemann of tiie Northwestern Umvertit: Medical School who has made the necessary specialized study which would qualify him as'an expert on the witness stand in matter. itiobeersl He is afamOy .man; vdl regceted in tiie conmiunity. He has -five or sucjchiklfen;has had tiw same ;j(te for mon thS>2Q^years; goes to chnrth regulariyV'l "7 its; brings hisdKciclidmetohtt^ end ofearh weekand enJoysamoctN. (f) also j from (2> provfo dfibe We need the expert to. interpret the test results for tiie reason that .lS per cent blood alcohol means nothing to the'average lay reputation as a: solid and substantial He only had two beers and, wnyway, :two beers wouldn't make a canarybird drunk. .. . * . ' ' 't *v .*r ** * '*> *v* .. . * C3X stance uponl man who tits upon the.jury, hi terms ofits Hit is atoogh case; cotahti for. tiie deeffort "pfi lmiitat| behavior.. Itis necessary1 fendant maligns, cxcoriates^and abusesthe tional agiSyiff o . ri-' .V.A * Street and Highway Traffic Section n inhan- 4, (4) /Hie simple definatory1 biUwbichipere- dlii^Jiu;di^:aqd--.fbr^ lyprovidesa bare stotutory interpretatioo oi insiiKerityinbring^ achsurge.^ the.test results.>r v.;.. 4 ;-. oocofthemodcl dtiyens/of the community. .Tift;' question is wbK&.type of legiidationr .'beaur'in. mind,ali of, this tethnonyis in. any girenstate; has the best 'chance ; of o^ffaUnipqy; o^niaa on, pne de and dropped into the ;^e tgnorirx*eachof whom of this is H it is other No. 2 or Na4I wouldsay own indi- by all means propose it at once. ' ' vktnaluopmion jofijnrtVwhai'/isi; misiint:;'by K it is Na l we cone^to a yery definite "nnder^tte:.^ogy^of; intim^tng-iliqopfo" ^ ofColambiabill con The <ewS^i^.:l''^^nil^w.a^,iajcertam'y^-. tains; the provisioawhich precludes >cpm- -ingrjin^' ..'.' 'v*V' polsorytests, and.if tins bill sbouldbe, en Then thetrial jod*e,whois a veryhdp- acted into lawJt1is niy^^nMon tint. we. are fd jlitdc'fdlow in for soine iead trbtti in D. ;G- from then oOhim by law tdls the jnrytbis: "Ladies on-TheState^ yetrnetbe day and - f**"*!*TM1",' 'a .criminal: can%' tbc. defendant isdothedwiih apresumption^of what it perauttedsadr a provisionto be in serted intoits law. . innocence; - Unless--yoo an ' satisfied -of ids gmit upon the law and bp vnAspct beyond areastmabie dokbtitu yourdntyto bring in a' verdict. of: not gunty" This the jury promptlydoes,and ywhave'- anotbermis-. camage'of jnstice. . It is obyiomt^^ tests to determine intoxication is rapidlyincreas- ing- Public .knowledge af.tbe genend nature of these tests is also.'rafdcDy increasing. Al- though. there is.little'difficulty in obtaining, sanies foranalysisas yet, .weprast haiddy To get away frotnall tins uncertainty;. to - face the prospect of defendants in increasing plare theprepositiooofMnnder the inflpence" mindiers refosfiig to yidd ninpl^ Tpliin* upon a sound, coacrete, and definite basis, so 'tarily; There can{ jbe no qnestion about this .. as to dinunate.aU.gnen wori^ these chemical and when tf^ day comei.when this fi^ tests were perfected.; ^{fRpcrijBnciiiia is to,either acquit tibe-imincmt; before.trial is. appreciable wk. win .baye .to -take.;tiw samples against the will of tfK defewfctnt; or to nw down a case agamst.ibe guilty so obviously tbe^4a statutory prOvitioa ex- tightlythat aS argument ireJiminated. Tins dnding compulsory tests is. going to prove they. do anddq>;so yery. wdL. . extrandy embarrassing., Hiawewttemeansng of the .tests,most be expbined .to .tfae juryehher bytbeexpert witness or rnnstbe set npm statutory form so that the trial jodge may explainit For this reason, and for tbe further rsoa tiiat once on tbe books, coOcessions of tills type are. almost^impossible> to- be rid ..of, I suggest to you that we face the problem from the ovetidl long range view and act 'accord- dCmSI lonm ingly. -Rather fail to enadta bill tinh to enact one with such a concession. (nctiuOR.pat some Poor "Teatf? B ; R is : not poaSUe fe> ptefict ytitat the courts wfll tfo with the propositiod of com- UXTheDi^^ which also provides that no.; sample.may.be .taken . from'accused tmte^ liie coiBajts. ptdsipry tests when ti^cy ultimatidy come' be fore thenvbmthereisra that a^feiircnasideratiOT^^ probldnwillre- sult in;tibeir'fieng jodidally approved. Wit . (2)vTh<i ^ which also ness, foriiwtabce;-th^ cbinpdl-; provides that the rCbm^may'admfe the :ipe-'- sory ^ wbicb bas. nowc bw ipprp^^ alm^'CT ;ih the 1ah& ;; S^ a 'crural. (3)^ The proposed i>31 which makes the is suance ofan 'operator?*- license contingent upootheredpientfirst waning hu^coostitu- <^end^;'to^dferot^fand discldse iddittfsring Kax^marhslan^ibtc^^^^ tionalri^itsagainst It is poor psydiology^to1 proceed along aganist.-searcfi;^vadi9or&''>-'-'-' . die line of exaxnining-w&iuntary samples only TT 78 31st National. Safety Congress with a dear disregard of a vital problem system of ecdeaastlcal coarts, or church, which the futurebolds. One might argue, courts, winch were concernedchiefly with then, that it would be far better to submit a prosecutions for heresy. These courts, guard bill to the legislature which would author ing the state religion, wereraccustomed 'to ize die enforcing authorities to. take samples administer.. an oath ..called the oath "ex by forces if need be, and thus present the' officio" and defendants wore, thereupon, question of constitutionality of such a bill called upon to testify against. tijCmselyes and to the courts after enactment make full discTosnres. The original purpose, therefore, of the privilege agamst . sdf'iitThe public has, as yet, been insufficiently crinunarion which arose, ont of popular- reac educated' to the chemical tests for such a tion against the oath "ex officio" was.to bar bill to have much of a chance of being con from the record oral testimony winch was sidered. When the educational processes produced under duress and which, for the have made sufficient progress so that citi zens generally understand that these tests will as quickly acquit the innocent as convict the guilty then we are in a position to offer snch legislation. That period will be reached sake of relieving snch duress, might be truthfnl or untruthful. It is easily seen that one charged with crime who is tortured, into a confession may make any kind of. confession in order to escape the torture. Snch con when defendants arrested for operating ve fession may well be made, under such cir hicles while under thefmfluence demand the cumstances, by an innocent person. test in order to clear themselves. In the case of the chemical testvhowever, The time will come when these tests will the same test;resnlt is achieved, whether the take their true place in the estimation of the sample be taken fay force from the accused public and will be recognized as thoroughly or given voluntarily by him. The test result accurate and simply infallible, when carefully cannot tell a lie in either case and only the made by a competent analyst. Until that time . strictitruth is spoken. There seems to be no let us not offer a bill which will contain pro reason, therefore; fortbecoarts-to include visions in advance of their time, but, if these matters within the self. incrimination force eventually becomes necessary let us privilege, and it is quite likely, when the pre , present the issue to the courts in the first in cise issue of the chemical tests taken under stance without the aid of a statute. A favor compulsion is presented to the courts; flat able decision from the courts will go a long they will take die view tint compulsory tests ' way toward convincing legislators and, in do not violate constitutional provisions any deed, will make a statute on the subject mere than compulsory finger printing does. wholly unnecessary. . The original Indiana Act which forms Self-Incrimination the basis for all the bills which have thus far been introduced provides the statutory With reference Jo ihe type of legislation definition required and provides for' die ad- - which would reqmregjpmon to. sign away mission of the test remits into evidence. certain constitutional rights as a condition I am advised tint this law has worked very precedent to obtaining '^ license., to drive, well in Indiana? This Indiana bill was of apparently authority on this question does fered verbatim to the Illinois'legislature in not exist A careful consideration of this 1941 and was passed fay a majority of both question, however, indicates that the issue of booses.. The Attorney General held the_ bill ' constitutionality of such a statute would be to "be unconstitutional arguingthat the bill highly debatable if, at least, a defendant does purported to authorize courts to`admit evi have such a constitutional right as to refuse dence based upon the'chemical tests, regard to yield a sample for examination. less of how the samples were obtained, i. e* inferentially. bedding-.that testimony based The primary purpose of the constitutional upon analysis of samples taken under com guarantees against self incrimination was to pulsion was violative of the constitution, and prevent falsehood creeping into the record also that tire bill-purported to. allow the In by forcing persons charged with offenses to troduction of evidence based upon aiqr type testify orally or in writing against them of analysis whether the same were accurate selves. About the time ofthe founding of the or nob Those of us who. -sponsored the American colonies there existed in England a Illinois bill have not.been-particularly im pressed upota tfa I simpl} state ill when y own leg York;! tally tl Indiana by the j There simple i pnets th Profess* ion that srill met arid will type of 1 meat to motor v War manpow proveme enforcai use tiie applicati that soo many pi salved a a dty c Wart lie alter usual ns of traffi is the f talked, 1 tempted that the us but 4 We fa horrors crushed vehicles, worn ou The w by the t j.X-i.:'i. WP-'.`vr'i.cWiVv-r'i , Street and'Highway Traffic Section c 79 pressed with the tortured construction placed upob the bill by the Attorney. General, .but , I simply advise you of whathappenedin this }state iff. order to place, you upon. your, guard when you have bills' introduced into your, own legislatures: The constitutions of New York, Indiana, Maine and Oregon areessentially the same as that of Illinois, and the Indiana bill, in essence, has beep approved by die Attorneys General "of those states; Theft remains, , then, to be discussed, the simple definatory bill which merely inter prets die, test results- and stops right there., Professor Monroe^ committee is of die opin ion that for the time being this type of bill will meet with less opposition than any other and will serve die. purpose very well. This type of bill is.usually prepared as an amend ment to die drunken driving, section of the motor vehicle laws and simply provides that for the .purposes of the above section a per son^shall be considered primafacie tinder tine influence whose blood containsmore than .15 per cent absolute alcohol by weight This! type of bill has the advantage of being ex tremely simple, affording little room for argument among' the legislators an<i will serve the purpos-fqr die time being as well as any of the others; Vi- f c.s : The need for legislation cannot 'be too strongly urged at the present; time; first because the . war emergency has made the drunken driving problem much more acute; second, because die proper use of the chem ical tests -in the enforcement work can per haps be die greatest single help in coping with this ' problem, and third, because the legislature of most of die states meet in January, uf 1943 ad will not meet again for two years thereafter. Pedestrkm Sofety In War lime By HOWARD SMITHHISLER Information Coordinator, Traffic Safety Aten, Detroit, Mich. War means-'that because of material and has long been.-1 gone when public* imagina manpower; shortages many engineering im tion, interest or cooperation can-be., at provements may have to wait. It means that tracted by appeals to be careful--to watch enforcement. levels may slope downward. I while you walk--to practice safety first *. use die word "may" advisedly because with (application- of Htbe same American ingenuity It need not have taken a Pearl. Harbor that soon .will bring the Axis to its knees, to make its awarcof a changed public atti many problems of safety engineering can be tude. Long before then we should, have, salved and the enforcement problem in many sensed that our appeals to be carefUl had a dty can bejicked. been worn pretty, thin. After all, most peo ple don't want to be careful. We are a chance War means, too, that competition for pub taking people. lic -attention is extraordinarily keen---that usual media for public education on matters There's a place for the indirect appeal of traffic safety may be ineffectual. This in pedestrian, safety, Ukj. And there's alsoa is the time to get -things done. We have place for taking advantage of an opportunity talked, we have written, and. we. have at mat was mentioned, earlier--the opportunity tempted to pictorialize safety' for so long to capitalize on a-puUic attitude that is cry that the very idea is hackneyed not only to ing for directives and for leadership. . us but to the public as well. . Early In May-of this year, our Common We have portrayed time and again the Council enacted a new ordinance. By dint of horrors and the anguish of Httie children much persuasion--particularly directed to- crushed. beneath the_ wheels of fast-moving . ward newspaper headline writers--the new vehicles, and in so doing, we have virtually law became officially and generally known worn- out a bask emotional appeal. as the Pedestrian Protection. Ordinance. The wartime-job of safety will not be done We didn't want the ordinance to be known by the tritewiethods.:of -the past The day as, or referred to as a jay-walking law. Not 80 31st National Safety Congress only isihat term subject to misinterpreta tion In infinite variety, but the worditsdf has an ugly connotation. Hie passage of tills ordinance represented nearly six months of intensive effort on the part of our Associa tion. Even before Pearl Harbor, we had diag part of the public for their; owh: safety 'or well bring when, as: tbe: ordtnancebecame effective,- pedestrians vraJked vrito' thegreeh light: and motorists respected thdrright*of- wayoin turns. "." . 1 ' \ They complied and voluntanly to a large extent becanse"it was the law." To quote nosed public attitude as being receptive for oik earlyvecipient of a ticket: *T always directives. And if any city ever had a rec . figured I was smartenoughto keep, from ord on which to make a idea for directives bring hit by; an automobile bid I guest Pm to control pedestrian movements, ours had. not . smart riiough to dodge the cop on toe With one notable exception, the ordinance corner.'* does not differ from, other so-called.-jay just as truth is toe baac dement in all walking laws--the exception being a provi advertising whkh is mccmful--sowas truth sion that no pedestrian may step into a street needed to tiadt. P oar. assertion that *iti without first coming to a stop and then look the law" A carefully planned enforcement ing in both directions before crossing. This program took care of :toat.FaUowihg.m provision, incidentally, is bring watched police educational program whichembodied dosdy and although it u much too soon'for toe use of riides and explanatorywritten any results to be conclusive, we are encour .material and to whkh every officer in tiie aged at toe effect this provision is appar department was subjected, a tnuform en-. ently having on the number of near-curb fcuoeineat .policy was laid down by police pedestrian accidents--toeiocatibo; as you all- 'officials/'* know, where the majority of pedestrian acri-( dents occur. Officers were instructoi to be lenient dur ing toe first; f^ wedes after the ottonanoe We found the public receptive and we took toolceffect. Gradually enforcement tightened advantage of that receptiveness to make toe up and since toefirstof August arrests average pedestrian respond to our plea for tinder the ordhiance haveaveraged mocetoan voluntary observance of toe new law' to 200 aday--afigurehigh-enough toconvince control Ins actions while walking. Aside a lot of people that`^S toe tow." from a highly selective campaign to impress those persons within the community who influence public opinion with toe need'for control. of pedestrian actions, we steered completely away from any appeals to self preservation. We didn't ask people to walk safdy lest they get lilt We didn't admonish them to watch while they walked. Borrowing a page from our experiences m toe previous December's campaign-against accidents doe to-alcohol, we decided again to take toe indirect approach to sell safety. We have a working dart in our office now vriticb serves as a gride for -sustained effort throughout the months .to come. We have purposely curtailed intensive promotion of toe tow hi recent months because it is vir tually impossible to maintain an . even . pitch over a" number of.monthsod ooe topic;. Bet ter to show periodic peaksand valleys in the interest curvetoari attenjpttonnintain a regularity thatwili soon beeomemonoto- nous. ; We amply set forth toe directives as en** ? Indicative; too; of the need for keeping on bodied in the ordinance and cooduded with top of the job is the dart here whichsbows toe admonition that "It's the law".1 perhaps daffy issuance of notices to violators of the leaving toe inference that we didn't give a pedestrian tow. There seems to be a ford damn if they stepped into the street and ing off of effort hue and.thatis.1he cue for lolled themselves. 'To ail outward appear a visit to the police deportment to ask toe ances, there was no great concern on the question, "Why?" Duri ctTM listed rtcorto denfn Found) Traf states; ities, 1 the wa been a by tin :C A record) tionffi besou record) is.heir a- n--Vd- --to - Altfa that gi spw? traffic wellw tipfrtM piano tenor - w-.ol inton andac record) ample; tedti O-*OsC--Ih> month! spot m evident The; Traffic yourC Street and Highway Traffic Section 81 8teta Traffic ^oji" Accident Record* By WILBUR 8. SMITH : V Columbia; 8. Chairmen of the Committee Daring the past twelve months the .Cotm* Records cooperates, has cooipleted its work cfTs. statistical fidd representatives Ittve as- . on a bade traffic.accident' definition manual. sute329stateim injprovmg thdr aeddent It has been & great pleasure to me that.this reodnls mechanics and in putting their acci ' manual, although representing vastly greater dent;rett>inis.tb wbrlc. Thu activity continues breadth of opinion than dld the manual tobcsiqyortcd by the Automotive Safety . drafted by yotte comiffittra;a.lnr years back, 'Foundation: is not mbA differmt from your committee's manual jn. essentials.. The'1 new W*n*t*nn Traffic accident records work in cities and manual, proposed for use beginning,January states, just as wito.:`mpst other traffic activ 1, 194% has beat published by toe U. S. ities^ has been .'somewhat curtailed dhe to Bureau of tbe Census. Copieshave already the war. Persoohd of record bureaus hare ' beensenttothe states and to die larger cities. been attfacted'Jbarywar industries, as well as Additional copiesfor distribution to medium by dte anned sendces tbemsdves. Despite . sized and small " cities - will be available - some curtaflmentin personnel--and to may shortly.......... seem somewbat paradoadcat^traffic. .. -. 'i. :: . ; records today aregetting morcitSl.ratten , The.. standard trafBc acddexn report and tion ffiah at any time intbepast Theremiy stnmnaty forms designed for use. in cities be soroewbat fewer man-bours available for , and states bave continued to getgreater and records work; bat the information developed greater acceptance. The standard trafficaccf- is. being restricted to tbe facts which are denfreport fonti'is.';i^ in actually needed to guidepolky andaction, . port; m '40 slates;. Tbe standvd summary and thc^ i2cts aFe being: nsed to a greater form in 30 states. Over 400 ddes are Using exieqttnan everoetore. .. tbemontbly sununaiyfonus reconanendedby pjbe Cdmmittee op Traffic Accident Records. "Although we ah; agreed a few years ago i'The Council's sale of individual rcportTorms that good-traffic accident records were fan* runs into tbejhnndreds of thousandsanhnally, dsmental to an effective. accident prevention with an additional group pf-citieswhich prbgranvjt was nevertheless true thatmany print.vp their own-forms in htactlytbesame^ trafficpeoplecoofd getalong at leastfairly or beady tbe same, style as tbe recommended Of: expq-iehccbualt form. r op fromobservationj and,accident facts. Jnst pLainobservatioa on the part of experts with No reviskHtt m report or summary forms ten oc\ffiteen years experience in. the. field are contemplated for the new year. Tbe forms - wats.often.* good _basis for action.Today, . hoar; inutehave proven more satisfactory and accidents,' it is absolutely uoUlIC than any previoudy designed, and suggested . dsugs Jaw coofr.u at a lower rate than records beused tokeepop4ojaic. For ex* ever more. asnplcw mot iqms have.alwaya-been a pretty dell 'Sccqpted^tedmi^.ftn-deterniinlng- ao . The Cotmcil: staffhaicootinuttl toproroote ddent concentrations, bat in the last few improved accident record wrbc^^iroaa^ltBass months a considerably greater1interest' in room instruction. The coarse in accident tec* spot mapsas anecessary tooihasbeen very ords, as a part.of toe National, Institute for evident - Traffic Traibii^, >ras `agjdn cooducted. The statistical ^ fidd - representatives have taken part in a number of state pdice sdwols, ^y* . smtmmm mmobu ing instroction 'on accidem rqw and investutatiota -Three- staff' members will TteNatuxalG^^ Uniform shortly begin;periods of instruction in acd* Traffic Accident Statistics^ in wbosework dent records at toe Northwestern University ; yonr Councfl Committee oh Traffic Accident Traffic Institute. ^ O mmmgm 82 31st National Safety Cotigress . Report o! the Committee on Winter Driving Hoards Prepared h? RALPH A. MOYER Asst Prat of Highway Rn&, Iowa State College, Ames, Iowa Presented by JUDGE HARRY PORTER At the 1941 meeting of the committee, the program decided on consisted of disseminat ing the information which resulted from die previous three years of research. ***- When the President of die United States proclaimed that the National' Safety Council should take a leading part in reducing acci dents in the pre-war emergency, the com mittee prepared a bulletin named "Winter Driving in the Traffic Accident Emergency." Seven thousand of these bulletins were dis tributed to key officials and- organizations. Department, safety councils, and other or ganizations. 3. An article was -published in the August issue of Public Safety magazine entitled "When Winter Comes." Another well-illtutrated article has been prepared for publica tion in the November issue of Public Safety magazine. 4. A poster on winter driving has been printed and is now available. At the mid-year meeting of die.committee it was decided that the-war bad eliminated the possibility for further research during die emergency and the committee program for the ensuing period should be wholly one of education. The educational program was to. consist of two parts. One, devoted to careful public education on winter driving aids to drivers daring die war; the second,; to winter road maintenance methods. The committee's accomplishments during the past six months consist of: 1. Preparation of the booklet entitled "Winter Road Maintenance." This is pri marily for winter road maintenance organi zations--city, county and state--in the snow belt, and applies to war conditions. These will be widely distributed to all of these agencies. ' 2. The pamphlet entitled "Winter Rules for Auto Pools," which is directed to die driver. These will be distributed in. a very large number through the Army Ordnance Committee Proposals 1. Thepreparatiou of fifteen recorded ra diograms for driver.consumption an various whiter driving practices which are applicable to wartime conditions. These will(be broad cast 00 approximately 130 radio'-stations throughout the snow belt 2. Newspaper releases directed specifically "at war industry workers which will deaT with traffic delays and accidents caused by severe winter conditions. The committee has coop erated fully in line with the spirit of the times. , < Never before have we faced such a critical y manpower situation. Our sights are set on directing help for the motoring public in minimizing avoidable winter hazards. Every committee member is confident that these efforts, after the war, will indicate that the Committee on Winter Driving Hazards saves manpower for warpower through its activi ties of educating the pnblk to drive safely during winter months. Report of the Committee on Pedestrian Controi and Protection By LESLIE J. SORENSON Traffic Engineer, City of Chicago, and Chairman, Committee on Pedestrian Control and Protection As soon as possible after the 1941 Congress, the Committee completed publication of the annual report, which was issued as a 64-page booklet This report , is the most compre hensive yet published on Pedestrian Protec tion, and serves as. a manual and hand book for those planning pedestrian programs. Ten thousand copies were printed, and.approxi mately 6,000 copies have been, distributed. The booklet entitled "Safe on Foot" contains The pampb the Ti copies of cha The during the lea 25,100 Killing past y< of., the issued 5SO.OOC Sup* A st from 2 showed ing dri per cei Of n on air 'departs first m 1355 p for the 61 per amests jtkms.l arrests The fifes, ai 'tin* 1* appetit money places a long threate f }t Street, and Highway Traffic Section 83 a'sUggested state pedestrian safety program. . sound slide film,' "Are Your Feet Killing The Committee jlso published a special pamphlet. entitled ^Pedestrian Protection in the Traffic Accident Emergency," and 7,000 You?" have been sold to date. This., film is of partiailar- value in off-tbe-job accident prevention programs. copies of this booklet were distributed free The Goifimittee carried out an off-tbe-job of charge. accident study, getting reports from a num The sale of pedestrian leaflets has continued during the last year, and 147,800 copies of ber of cities, following plans made at the meeting of the Committee last May; the leaflet "Will You Be Next?" were sold. 25,100 copies of. the leaflet "Are Your Feet No special report is being published .for Killing You?" wore also sold during the past year. These sales bring die total number the past yr, as most efforts are related directly to the war effort,, and research stud of , the'three pedestrian leaflets originally issued by the Committee to approximately ies are. being passed on as quicldy as they become available. There may be a new pedes 550,000 copies. trian leaflet prepared in the near future. This .would deal particularly with pedestrians in A total of 235 copies of the pedestrian the vicinity of war production plants. Report of Committee on Tests lor- Intoxication By DON F. STIVER Supt, Indiana State Police, and Chairman, Committee on Tests for Intoxication Drunkenness seems to be increasing with power through accidents brought about by the intensification of the nation's'war effort. drunkenness, both among civilians and to We of the National Safety Council's Com same extent among military personnel. This mittee oa Tests for Intoxication have watched has already, set die prohibitionists on die the rise in drunken driving, the mounting march; and most stir us all to greater atten total of arrests for this offense, and the grow tion to.the issue.. ing'roster of deaths from the :same cause. ' I am not here concerned with die merits A survey of traffic deaths or- information of prohibition as a curb for this evil, but from 22 states tor die years 1940 and 1941 rather with die merits of .chemical tests for showed a 27 per cent increase in fatal drink intoxication as a weapon in thefiands of pub* ing driver accidents, as compared with a 17 . lie officials to fix blame where it rightly be .per- cent increase in other fatal accidents. longs. Fortunately tests had been gaining Of more recent date I can quote the figures on arrests, for drunken driving by my own department, the Indiana State Police; In die scattered acceptance several years before the war, or we would-not how have diem at our "disposal. - first nine months of 1942 we have arrested Our committee during this past year has 1,855 persons for this offense as against 1,149 endeavored to-put our methods -arid .informal for die same period in 1941, or an increase of tfon in order so that they might be' ready' 61 per cent, widt a numdical increase of 706 now. thata drastic use of them seems to be arrests.. An average, of 90 per cent convic called for. We began a Manual on Tests for . tions /have, obtained in disposing of these Intoxication, a part .of which was being pre~ ahHest&.' pared-by eminent medical specialists and toxi The strain of war, the uprooting of fam-flies, and longer working hdurs are contribu ting perhaps to man's apparently increased appetite for liquor. Many men have more money for entertainment and less time and places in which to spend it than for many cologists by ottr Committee, and part by our committees secretary, Don Berry. It was to have been a lucid explanation of die problem and our answers. Its chapter headings give you a bird's-eye view of the contents. They are:. a'long ^yesir. -Whatever the cause, we are ' The Drunken Driver threatened with a loss of manpower for war- Problen^ in Enforcement . --"^PiiliipiS! 84 31st National Safety Congress*. !' Blood Alcohol and Intoxication" - tion in states wfaere it is not now on the ' I;1 Urine, Breath, . Saliva and Sphal Fluid.. bodes. The .States of Main^New York, Chemistry of Alcohol Tests Inana,aiid.Oregon faa^idk'.stattt^^T^ Use of Chemical Tests biHwill beready intiroeWintroductioo into Legal Problems the several Evidence for Courts .where Bs;'passage? -m^jrfbe'sdoite!:!^ 'State - Presenting Testimony in Court agencies.Leadcnbipfortiiis projecthosbeen Procedure in Setting Up Testing Programs ably provjded - by Dr. Dadd (LMunroe of The Pedestrian Niorthweateni-Umverinty Traffic' Institute... Aids in Education I am positive that the Manual could sell the program to die nation, bat onfortunately for tts Don Berry was' urgently needed in Washington on problems (dating to planning for Gvitiah Evacuation and Transportation for the Office of Gvitian Defense and he has been lent to them for some months^ andwe . In several jeases we: know, that tbe-many is using efaemieal tests for intoxication. We are fliffw to rtii both in. the army 'and in thenavyf as.a fair and aocmate inmod drunkenness upon their personnel} wherethey wish to do so. have not had .his services for completion of the Manual. The' idea, has been growing among ns that . ultimately chemical testa:for iqtoorfcatioa will Work has alsobeenvirtually completed on : 'he' universal'and compuliory.'*The war -may the draft of a model state statute authorising hasten tint day. We look to you to help us and establishing chemical tests for intoadca- hurry aiding the twwnplMiniB't of this gnL Report ol Committer of Traffic Court judges and Prosscutors By JUDOS BARL W. FROST Municipal Court, Kansas City, Mo, had Chairman, Commutes of Traffic Const Jndgts and 'Prosecutors. As has been characteristic of many other that area, and one at Gevdand directed m {dans and programs, the Committee of Traf tiie main at the state of Ohio. Tentative fic Court Judges and Prosecutors has not {daps lave beat made for several otbers, and been able to carry out some of the plans - the date has been'set for one of these to be which were made a year ago. held at Lincoln, Nebraska incooncctionwith t For example, the Committee {denned to make a questionnaire study of traffic prose cutors to find oat just what jprosecutors are doing in connection wity tbej trying of traf fic cases. The questionnaire for tins purpose was prepared and has' been approved by the Committee, but since thatwasdooeh has not been possible to send the questionnaire to the various prosecutors over the country and tins project is being held m abeyance. the annual meeting'of tiie Nebraska State Bar Association. Tentative plans have been made for a conference at Salt Lake Gty, and there. kais been' correspondence relative to confcrencesat .Baltimore and. Atlanta. A conference or sectipnal meeting for judges and prosecntqrs will probably beheld at Memphis in Fiebruaiy in connection vritii the Southern Safety Conference. * '' * " `Die war effort and the new pressing prob- One project planned by IthcCoinmitteg, however, has received some .attention -and plans have been made. for. even greater ac tivity in the months to come. I refer to the holding of. regional conferences for traffic court judges and prosecutors. lenisof thetrafficcourt incoonectiociwith defense workers and handling members-of the >armed "services-.have-.stimulated interest in these regional., cqnfercncey aiid they are being {JMy*t. as efforts to solvingtrafiic problems in connection with the war effort Two such conferences haqe been hrid dur- ing tiie past year--one at ^Cansas Gty for It is suggested; that die members of die judges and prosecutors frotn figp. states in Committee shotdd espedaUy;: interest, them- 'V1 sdydr-it are'expi prombtii these pa uuprovn thuthe and hsl; thefntu FoQoi report c ptfraufi Cases." and has PrsiidM * Tfaef ganiaata Perry i plained iicateth is ants) court tii foflowin hdd ton from 7^ courts b ficer ain courtuz Street and Highway Traffic Section 85 selyear-intoese n^onal conferences and they Committee also prepared, ant phbUsheda ate?expected; to assume a major part dt Uhe' special-booklet- entitled,, "The Traffic" Court ^promotional7 workfbrconferendes' heldin in the Traffic Acddent^Emergoicy" Six toeif particnlar areas. thousand copies of-this booldet were .prmted TheJunior-Bar Conference. oftbeAinerican Biu' Association has alsoindudcd in their projects for the year cooperation in improvirig tra^ ;cbarfs`:aiiid itisecpected tbit mCoombittee will have thecbopcration . and - ffistrSmted toto of darge. It-has-been very popular and has served as a-guide to many traffic cports. in orgamizing and meeting some-of toe special problems which toe war effort his created. and help of the Jumor Bar Conference in There has been toe usual efforts to contact the-Tfctire; regional ' meeting*.'. ' and interest other judges hi .toe work ed im Folbwiv tte 19fl Congress, the anmsl report of t&: Committee-was completed and pttolishedtmder toetitle, "TryingTraffic Cases."This has been widely distributed and has served to meet a very pressing'need. proved traffic toort adimnistratioh and pror cedore with much individual correspondence with judges here and'toere over toe counfry. Several judges are here at toe Gongress this wede.for!toe first tone; This wok.should go on so that toe traffic court , may receive To meet .toe increasing problems in con its full sham of attention in proportion to its nection with the war traffic emergency, the importance-in toe accident prevention job. THURSDAY MORNING SESSION October 29, 1942 GROUP SESSION OR TRAFFIC COURT JUDGES AND PROSECUTORS Presiding:--Judge Joe Biown Cummings, Municipal Court, Nashville, Tam. / The first.talk on effective traffic court or- dent experience. Judge Frey feds toat toe B0IX3$IOtl Mtt& pifpCfffttfPC WSS* ET(Q tjf JFodjfC corn! should be solemn and dignified. He in Perry A. Frey.Qeveland. Thejudge ex forms people of their right to. plead guilty plained toe procedure of fix aevdiai trip or not guilty. Ninety-eight per cent plead licate ticket system. At toe tone the violator guilty. Money fines now mean mnch less,to is arrested he has a choice of appearing hi the average defendgnt'toan does license st& court ffie next'morning or'attending,toe first pension,v-and. Judge Frey has therefore in foQowmg inglit session.; These sessions are creased this sentence. hdd twonightsaweek, Toesdayand Friday, from' 7dO night. Cleveland has a viobtors^schoOl to which courts handle only: :ofibnes. -The of those who have been brought in two or three ficer ahestmg toe violatordoes'not attend. tones on., minor offensesare sent^ and to court 'unless ^ violator'pkads Mnot gmlty." winch toosefor serious offenses are sent the >. . ::: ' first tone. It also has a probation department The Qefd^iOirt:liu%i:180 to 200 ivhichhandles cases of driving while intoxi cases at a tone abd is too crowded. . .The. cated, and cases in which! toere is incomplete bench is-stparated Jby a railCand far enough. knowledge of toe violatarv This .department backtopnrrent anyone's wfusperingto toe . checks toe background of the vklator to give Judge1 The'traffic court ts ustuffiy the first toe judge a better:!idea ofthepersonhe is court that most people ever sro; consequently, dealing wito. Apsychiatricdinic bandies H should be deasv well planned; and in proper cases m wbidi toere niigbt be. something condition; - .In opcningthecourt^JudgcFrcy physically orraentally wroog. stated he makes a few senous remarks re garding a scoreboardcoveringtoecity's acci Judge Frqr discussed briefly toe great im- W - r i: 86' 31st National Safety Congress . portance of the night, court,' which offsets lost man hoars of worker production, by tak ing care of the violator at night He stated that night cases average 125 to 200 in num ber, and that practically all those summoned do appear at court him: is most important: People should he treated with dignity and respect and the court, in turn, will receive the same treat-, meat Promptness is stressed in Kansas Gty courts, which have a special schedule for handling traffic does. Effective techniques in trying traffic cases were discussed hy Judge Edmund B. Smith of Mr. George Bowman, Deputy District At e;i Kansas City, Missouri. Judge Snufit* stated torney of Milwaukee County, spoke ori the that judges are not interested_ so much in the subjected preparation of cases involving driv L collection of fines as in remedying traffic evils. ers under the influence of alcohol. .The prose The judge should study the human problems cutor should go immediately arid directly to that came into court; the "why" of each case. tire scene-of toe crime so that he may get a Judge Smith stated that the prosecutor does vivid picture of the situation. In tins way he riot have'lnuch chance to prepare a case be can see all the factors involved in the case. It fore it comes to the court He suggested that also becomes important to have the city engi police officers with serious cases about which neer make a map drawn to scale showing all they are doubtful should consult the prose details of the situation. Milwaukee Chanty cutor so that he may get a continuance and uses fufoua on which is noted the attitude, time to prepare the. case. The accident in appearance;; reaction, etc. of the suspect, and . vestigation unit should also be put to work on a checkJsmadc^robcerring every case. A cases of this kind so that when it cocnes before request for bodyuuid| is made from which the Judge all the information possibly avail analyses may be takeri?Wheh tire case comes able will be there. The attitude of the Judge to court tire opinions of experts are used in himself toward the people who come before preparation of the case for trial. The Organisation and Function of a Municipal Judges . Association By JUDGE CHRIST HOLM Municipal Court; Hibbing, Minn. Minnesota's municipal, courts, many 'of them established over half a century ago; had no organization or association width would bring the-jndges together for periodical dis cussion or consideration of their common problems. In Minnesota, as in probajdy'Biost other States of the Union, municipal courts still are sometimes unfortunately referra to as "inferior courts." %_' The provision of our Constitution under which municipal courts have been organized was adopted 85 years ago; before Indian up risings haul ceased in Minnesota, and while transportation was by ox-team or occasionally by horse and wagon. Minnesota was very definitely a backwoods, pioneer State whose principal roads were logging-roads or-trails through the big timber and whose popula tion consisted of a few people with no large cities or built-up communities. There, of course, were no lawyers except possibly in tiie-smalt, towns of Minneapolis and:St Paul. There was naturally no requirement in the Constitution that men presiding over mtntidpal courts be learned in the law. Since that time Minnesota has developed to a State of almost three trillion people, above the average population of the fortyeight States. It has developed rapidly so that it is now in a substantial .way: both an agricultural and industrial State. Its people audits institutions are no longer satisfied with the primitive and outmoded system of backwoods justice. They are no longer satisfied or content to. regard courts as an amusement or entertainment The only function nowexpected to be performed by courts is the function of deriding disputes and controversies and administering justice. We had had no substantial'improvement in our courts during the 85 years of State hood. While we have hundreds of: lawyers located i still, mat cent, tin judges t encOurag inevexy As a ] cipalcot one of ti that som the admi Minnesoi all traffic civil cool also can frequent] such con Rises who coc make th court. T of course These brought ten and tions are dispositH litigant Our h little of that titer the Stat oaths of it was p muriripa muriripa There parities c to write pecteda to asceri court in or judge This i seemed i judges i bring tit cusshm common ies and judges aj >' v>. Street and Highway Traffic Section 87 located in all parts of die State, there are stiUmanymttnkipal courts, almost 50 per centi: Uat are stOI operating with laymen lodges under , a procedure that permits and encourages a trial de novo or second trial in evcsy case disposed of by municipal courts. As a practicing lawyer before these mumapaT courts and then occupying die beach of one of these- courts for some years, I decided that some step ought to be tekm to improve die admihistration of justice as rendered by Minnesota's municipal courts. Not only were all traffic matters handled in these courts but avil controversies up to the amount of $500.00 also came before these courts, which were frequently incompetent properly to dispose of such controversies. the States an organization meeting was called to be held in die State Capitol in March of 1934. Thirteen municipal judges from various municipalities gathered at this humble initial meeting. Many of. them, especially die older ones, woe doubtful that an organization could even be accomplished, but all were hopeful and enthusiastic. There^are still tome municipal judges in Minnesota so indifferent that they have not become aware of the great value of member ship in the Judges' Association, but the great majority of- .Minnesota's municipal judges now are active, interested members of our Judges* Association. It is estimated dot four-fifths of.die people who. come- before die courts of my State make their first appearance in a municipal court These people comprise all classes but, It affords diem an opportunity for. social and professional contact with their fellow judges having kindred problems and respon sibilities. of course, in the majority of roses the poorer Since the; first meeting in March,-1934, datf.' we have each year had an annual meeting of These fonr-fifths of our people who are brought into municipal courts in civil mat ters and bn traffic and other criminal viola tions are entitled to the same efficient, final disposition of their problems that the large litigant or die felonious criminal received. the Judges' Association, which is always held at the time and place ofthe-annual meeting of the State Bar Association. These meetings are extremely lively and the discussion al ways helpful and instructive to thejnembers. A large number of our municipal judges are still laymen, but they benefit probably even Our Municipal bench in Minnesota bad so little of unity and was so under-privileged . that there was no place in the State, even in the State Capitol where municipal judges' oaths of office are required to be filed, where it was possible to get a complete list of die munfcjpal judges of die State or where more than the.lawyer judges from three dis cussions and contacts. In addition, we have each year in connection,-with the annual meeting of the league of Municipalities a Judges' Round Table discussion which is also 'quite generously attended and helpful to those who are present municipal courts were--located. -v There are municipal courts in 85 munici palities of Minnesota and It became necessary to write to all of these places where we sus pected a municipal court might east in order to ascertain whether there was a municipal court in such place and, if so, who die judge or judges of such court might be. Among many other favorable results com-' ing from the organization of Minnesota judges is an increased respect shown for the municipal bench by the members of the State Legislature. No difficulty was encountered in passing a law which provided for reun- . bursement of judges' expdisre attending meet ings of the Judges' Association. This involved considerable work but it seemed important to organize the munkipal judges into an Association which would bring than together periodically, for a dis. cession and mntual considaration of'their common problems. After preliminary inquir ies and conaCspdfjifegcc directed to as many judges a/could ber*apprehended" throughout When some irresponsible lawyer introduces legislation, the purpose of which would be even further to cripple and impair die munici pal bench, the views of the Judges' Associa tion are always shown the utmost respect by tbe Legislature. One of the reasons municipal judges should be organized on a State-wide basis and -by \ } v <?.. V. r 88 31st National SafetyCongress mutual discussion-, and. consideration learn that State before die sameday isover. each others proMcmsandwork oat better co operation is that many crimes' and partial lady traffic violations are no longer xnatters erases d&j^eSb^ diem fe'TuSei^Tdse*^ i in- of local . cphcerxL.yA driver whoviolatesa - support and ht&itie^' phys^ a^^nniotmc^ ' traffic law in die Northern portof tbeState asrnay be necessary to place their courtsand in the morning, may beendangering the'safety tbewprk of their courts oh a htgher.pfane of and lives of people in tbeSoothern .end of dignity and efficiency and respectability. By.JUDGE GBORGBD.NEILSON ; Mtmiripal Court: WaihingtoryD. CL . We of the judiciary, whose efforts are di lem? In our traffic court in the natianVcap- rected toward sane and sensible traffic en itol thq raffio has ptayed a major nde in tbe forcement, have a grave responsibility in traffic crusade. For nearly fearyear* fifteen pointing the way^throogh word and action^- minute and haH hotm bn(kasta from traffic tq die preservation of.fife and property. . com* itself havebnxtgbthome aconstantre-^ - - - Ow__ * ~~ .* It is a foregone condusioa that every life spared and every personal injury prevented, as well as all property saved, in .tarn will mean that mnch more nan-power and hate- rial available to produce those vital weapons of war so mgendy' needed by oar armed minder that trafficinfructions do not pay. All types of traffic cases arebroadcast,indad- ing maior and minor.offienseh-{Thiongh ffits medinm die' public,becomes familiar with die various safety rides of die road, and their inlerprelatioa as applied todfefects of va.rions'rases.-'^ forces. We mast be ever hnndfht that die traffic problem is one which requires eternal -vigil ance. The public, iududmg the motorists and die pedestrians, nmstbe ever traffic conscious. Tins, means dat a policy of. do-nodnng will not suffice. We must affirmathrdy--with intdligence and viaexh^-ptan and carry forward such activities as will Impress upon each and every individual that die traffic problem is his problem and that it is his life and Ins prop erty which may be lost if he fails to cooperate. Probably more people visit traffic court than any other court. They appear as wit-, nesses, as defendants, or simply as*viators. Hence, it may be dearly seen that the average citizen's first impression of die machinery of the judiciary in action is in most cues ob tained in traffic court. A smooth functioning, efficient, and striedy fair and impartial court will prove a powerful factor in instilling re spect for traffic and other .laws. What die judges the prosecutor, and die defense coun sel do and say wdl leave a deep impression on those present It has been said that this is die radio age. Have the full possibilities of this marvelous invention been* utilized in die traffic prob Thenewspapers and theradio both can be utilised to gobdadvantage jn gra&g Ae doctrine- Of safety - m - traffic. Fromvtime- to time valuable articles dealingwith the traffic . problem have'raw to my atttotioii. last winter-the National' Safety Cboncil itadf prepared and pdblished a series-' of. "Vital to Victjory"biilIetins, ffisemring pracdral/meas ures for reducing automobile.accidents. These covered'such ttmedy topics'.as ^Intoxication in the Traffic "Accident Emergency,', "^n^ ter Driving^': arid; `Tnjtectmg the' Pddes^ Irian." So riear- and fercehd were diese ffisensribos that' I imtnicted my derk to read diem at inibervab in tr^ benefit of traffic bffebders^'atri - the radio public. These were suppleroented ^y iny own personal comrnthts and phsorvations. OthCr name stems or value sapoBttea ojr ut Aner* Iran Automobile' Association, me Keystone Automobile: Club, and _our own- Department of Vehides and Traffic werepresented 'inlia mnil^f nuniyf, This radio programpfedtt- ration, together with newspaper articles cov ering the subjectmattcr, have aidedJcoosidcr- ably intbewaron careless-and reddest-. driving; . In condnrion, I should like to leave an- Street and Highway Traffic Section 89 pth<$ thought A goodbearttoheartdiscus- sion;betweenfi* bendhand the defendant in .scstefinsbuices. tnaybe'amore prtent. factor |a.`-pinMdhacn^;>irc^dt^i;iAaa lecture' andaheavy fine- If thecoort isinterested enough in promoting highway safetythat it takes.,time to impress the defendant: with his responsibilities j while' driving-w motor vehkfothepsycbologfc^effertispd^^ cannothelp bntproroote tetterdrivingpractices on otmhighways. * j ByEDWAPD C.FISHER '' ` - Jo^e of tfae ICunicipsl Coart, Lincoln, Nebr. - o- The, scope of possibility fnrdafion to as- ditions, the variety of which is limited only? sessingfines and penalties, is necessarily lim- bytteingemritjr andffresourcefulness of the itedljy the yanotediarttt or sbrtiitpry pro judge; Remembering that the. purpose ofrlaw visions tinder^wlddi' ilpbe''cbort' .oi^rates. In etrfoicement is not:tb om the city treasr Lincoln we are limhedto assessmeniof a > my/ hot rafiitetbprotnotepublic safety* sen- finenotto ex&ed^OOOi^ brtmstate cases tence can be suspended socnetinx^ oncon- we:lm;:^:wide'::Iwjtid^' thepnly; handicap dhioaswfahdiwiUbe calculatedip indnpe the beingthat the legiidatnre has hndertaken to violator to takeaninterestin traffic safety. It fix agreat assortmnt nfmlnimiim aiy) jnsix- is!.ar.bette;finr^.<c^r^tomake a careful inuiuir-fines for. various .offences* Ohr state ' driver, out of a badone than to simply col lect his "doDar and costs." : fitxmesforviolalioaofany statelaw and alsd to| drnnken drivingandreddess driv . . One of the most effective special penalties ing under city cr vDt^ atourdisposalis .the, suspension of driver's., licenses/and I thinlc fi^ has veiy iinpdrtant ` InLiocoln I have a definite schedule of - possibOitits wluchhaycnot been suffideritly fines injt0^qriUly;l(es.My, ?explored. In Nebraska weean suspeoddriv- theocyis thaltbe ipeoalty:Aoofo b^ cermfo : ex's Bcenw^for vxolatioh of any state trafiic andfiiat gendrafiy;the:sM lawandreddess anddrunkeh drmngVunde'r beassessed ^unst everycibe who is guilty cityordinances,and weeari make theseeither M tiie sanie ripi^ People.Utterly resent partial or absolnte. I tise the partsalsuspeh- discrimination andfavotltism. Therefore il sion in cases:vri>eie an absUrtte ohewould yon assessdifferentpenalties for thesarae pot' a trade driver.for xnstahce, rieaor tmt of oltee.rone.. -who, gets hitharder than an-, ba3TOes3,wfaidi would alsopnmsh Ms family. other,will:have just grbondto 'comrtoW .. Iftheman hasno dependents or does not eama Ihhg bydriying`fTsnspendhis license, Spedal Penalties absoltitdy. It is too ted ttet we cannot sus pend licenses in oMy braffic case. In' dealing with tbe mattcr of specialpan. ^jooas^rJ^qMBM.-inc^^attes^^', .to do somefoing which ithas ho power tin da The In order fo make fiie snspensiqa efiective thereTmnst be a really; serioas penalty in-. jej^Ttmert;^ limitspre-. volved in driving dttrmg fiie stupensidn.pe- saibedbylaw, because ifheimposesan nn- riod. I teve bmi asstaringi $10000 and 30' lawfu penalty he ;is in ho better position . days in jail fbr fins offenseL lt cbhld be SIO than foe original offemder. Judges cannot; days tmder the law. jbot we haven't had-very legaUyiznpose some of foe, freakpenalties many offenses of.fiiis land'and it han't lieeh thatsome people think they can, but, file necessary to raise it ' `; judge shoddknbwwtetbe ten abl cannot - '... /Vi;:. dor., S:.?:...: /f. jinreifile Tnfific' Cases A,great many good things can be.accom- ^ Becanse of the fact a .considerate fiifiied and tmdae terdship avoided in cer- number of our violatprs are yotmgsters who tttn teste h^ means bf ss^^ ' have oot learned tp ; drive or, teye ,learned --fite pehalty to be withheld on mtain ;Cbii* wxohjgior teve.no moo^f fo pay tbe fine.and 90 31st National Safety Congress their parent would have to pay, we devised a has no money, would have to spend several, special session .of our police court for of days in jail for passing a stop sign. Ob fenders seventeen years of age and. under. viously a jail term would, be "cruel mid un This session is held at 10 o'clock Saturday usual punishment," not only for the woman morning, after die regular police court is. but for'the whole family. over. These juveniles are required to bring one of their parents or their guardian along, so that we can be sure those responsible for the child know what is going on. In devising special penalties for excep tional cases like this we must be especially careful to make the alternatives sufficiently tough so that it cannot be said we are "fix At die opening of this juvenile session, I ing" the case, and it must be burdensome explain to die assembly die purpose and idea enough that they won't be too anxious to of traffic law enforcement In most of these escape paying the fine. cases I cannot suspend a driver's license but I can impound it as a condition of suspending sentence. Each juvenile violator is given die choice between two alternatives, (1) he may pay the usual fine for die offense with which he is charged, or (2) he may give up his driver's license for a certain period, at tend traffic school and write a 1,000 word paper on traffic safely. I always strongly recommend die second alternative because it teaches die youngster somesafety principles he may never otherwise get, it gives us a chance to provide him with some safety material to which he would not otherwise pay any attention, and it gains the coopera tion of die parent In most of these cases While it is true that the purpose of traf fic law enforcement is not to provide rev enue for the city, still the law provides for its enforcement by means of fines and there fore it should be done that way in all except those exceptional cases where it would be an exercise of poor judgment to apply the rules literally. Traffic safety can be far'more ef fectively. promoted with die cooperation of the people than without it, and" to send a traffic violator to jail for nonpayment of a fine and- have his family ,suffer meantime is not very far sighted judging. It will make a bolshevik out of him, and he will be an enemy of law enforcement from then on. they , have been^fighting Junior about using We have worked out a plan of cooperation die car, anyway, and usually they can't tdl with die Provost Marshal by which a soldier him anything about driving it, either. without funds, who would otherwise go to Furthermore, die second alternative re moves him from die streets as a traffic men ace until he has bad a chance to learn some thing about safe driving. It teaches the young driver die value of his driver's license. He. doesn't appreciate it very modi until it is gone, and then he wants it back right now. Thereafter he will be likely tq try. to behave so he won't lose it again. It likewise shows die people, in a convincing way, that it is not their money we. are after. It shows diem we are sincere in our efforts to promote traffic safety. jail for nonpayment of die fine, may plead not guilty and, in lieu of the usual appearance bond, be released to the Provost Marshal pending trial, or until he gets his money. Otherwise we treat diem just like drilians unless the army wants them. So fkr they have tamed all traffic violators over to us. This practice prevents having die soldierviolator held out.of: the ranks' laying out a fine in our jaflhouse. Treating them just like civilians is a middle course which avoids any criticism tint we are letting the soldiers' run wild, ignoring their traffic violations, or that we are being too hard on diem, trying As to the period die license is withheld, to make revenue from their presence near this is graduated according to die seriousness the city. - The army authorities understand of die offense--roughly 30 days for each $5.00 and appreciate our position and the plan Ins of fine. worked very well. Special Penalties for Adults In exceptional cases I have permitted the same alternative to adults, where payment of even a small fine would work a severe hardship, but these are special cases--for in stance a housewife with small children, who Judge Marcus Kavanaugh has sahl "the first purpose of a penal law is not to stay the commission of a crime but rather to prevent the creation of a criminal." Paraphrasing this for our purpose we can say that the first purpose of traffic laws is to prevent motor ists from' becoming law violators. JOIN Presidin sing, 1 T There blackout kept to military, services, maintain has time of its bii aerial d< the prin safety o the low . Conti* attainme partmem masks ir universal every ns to the i ohservaf vent defo bywhief tion whi traffic n: however, will met bile beat in intens beamlar Hie imj beadligh from aei can attai pertinent fomnty from set blackout safety p It is dot tions wh ^SP Street and Highway Traffic Section 91? THURSDAY MORNING SESSION c October 29, 1942 JOINT SESSION OF CITY AND STATE POLICE AND TRAFFIC ENGINEERS * Presiding:--MaxweIlJH^lsey, Executive Secy., MichiganStateSafety Commission, Lan- sing, Mich. ..< The Engineering Features of Blackout Traffic Control 'fj By ROBERT 6.' SWAIN 1st Lt, Corps of Engineers, Engineer Board, Port Belvoir, Va. There .will be traffic movement during lockouts,' although, certainly it must be kept to a minimum consistent with essential military operations and necessary civilian services. Tn recognition oi the importance of maintaining such traffic; the War Department has time and again reiterated the objectives of its blackout program: (1) Freedom from aerial detection, which of necessity must be die primary objective, and (2) Maximum safety of ground movement consistent with the low levels of illumination permissible. .. Controlled, illumination is essential to the attainment of theSe objectives. The War De partment has tested dozens of headlamp masks in an attempt to find some ample and /universal means, by which the headlights on every make and type of car might be dimmed to the road Slumination level which aerial observation have shown is necessary to pre vent detection at usual bombing altitudes-and by.which, at the same time; the beam distribu tion which provides greatest usefulness for traffic movement might be created. So.for, however, no mask las been designed which will , meet such requirements, since automo bile headlighting is far from being tmiforin in intensity and beam pattern. Even the sealed beam-lamps vary considerably in tins respect The importance of umfohnity in blackout beadlighting, until the assurance of immunity from aerial detection which only uniformity can attain, was recognized. After many ex periments, the decision was readied that uni formity could only be achieved by starting from scratch and designing a completely new blackout hcadlamp. Umformity in peacetime safety programs is a well established fact It is doubly important under blackout condi tions when so much is at stake and even die striking of a match may identify target areas. Army engineers, after establishing the de sirable characteristics of a blackout driving lamp, developed a unit, laving an accurately focused lamp, a scientifically designed lens, and a deverly shaped mask and hood, which is pot only invisible from the air at bomber operational heights, but which provides a controlled, though dim, illumination on the street and^highway as follows: C- . ' : 1. Illumination of a 30-foot roadway in such a manner that the apparent5 road bright ness from the driver's scat is the same from 20 feet to 100 feet in front of the vehide. 2. Uniform rgductiofMn roadway brigoht ness from 100 feet to 200 feet in front of the vehide. 3. Visual cutoff of the top of the beam directed downward at an angle of 1 degree below the horizontal. 4. Elimination of stray illumination out side the limits spedfied m 1, 2 and 3. Such jpbeam pattern and light intensity permits die safe operation of. motor vehides at a speed of approximatdy 15 miles per hour. rj ' Headlamps The headlamp;., however, is only part^of the blackout., mofbr vehicle lighting' system. Since the headlamp is invisible above |he horizontal, on the front of th'ecararetwo small marker lamps which are placed-on the fenders to serve as dearance lights and to indicate to approaching' cars that another 0 A 92 31st National Safety Congress vehide Is proceeding in die opposite direc tion. These marker lights are designed to have a maximum visibility of approximately 1,000 feet on a dear, moonless night when viewed with dark-adapted eyes. In addition to these dearance lights, a special stop and tail lamp has been designed to provide driv ing safety and yet meet die blackout require ment of freedom from aerial detection.- This tail light incorporates an unique distance judging, feature since extreme difficulty is experienced in' exactly gauging'the position of low intensity lights. The four "V" shaped openings of the toil light appear as one at distances greater than 150. feet, as two from 75 to 150 feet, and as four at all distances below 75 feet used for pavement markings. 'When paint or reflectorized coatings are used for center lines, continuous .lines are preferable. Cen terlines should be maintained on all two-way hard-surface routes of the primary street sys tem having an even number of lanes, and lane lines of a pattern distinct from center lines should be maintained on similar routes having over one lane available for travel in one direction. ' . 'i Traffic Signs /" Traffic signs under normal comtitioitis are one of die principal devices, employed jbjr. die traffic enguixir; when especially designed'and properly used, they are of equal otilifyjfor die Following die adaption of .die vehide blackout driving lamp, it was necessary to re design or modify, other traffic control devices in order to gain maximum utility from light emitted by this headlamp. I will describe briefly some of these devices, but to the traffic engineers and those enforcement offi cials who have worked dosdy with motor transportation, I would like to say that modi of this work is still to be done, and on diem will toll most of die burden of obtaining die The. cmployinent. of interior-illuminated sign boxes, provides a method of jrigntng which, unfe blackout-conditions, gives the greatest legibility for letter rite and per missible fllummation These signs are safe from aerial observation at very low altitudes when they, are designed to be undetectable on the ground from a distance of 2^000 feet A message of. three-inch letters in such a box will provide a legibility of approximately maximum benefits for vehide operators by effective utilization of die illumination pro vided by die blackout driving lamp. In order to do this, many existing devices.will have to be redesigned; finer, more accurate tech 150 feet during blackout Larger letters nay be used'where greater legibility is desired.New letter designs for blackout signs also give promise of greater legibility. niques for their use will . have to Jbe em Another method of sign iUummatioci, per ployed; and perhaps some new devices' de mitting use of existing traffic signs during veloped. . . blackout, is. by attachment of a small, well- shielded, battery operated lamp of die flash Obviously-the beam pattern of the black light type to a. sign -in' order to make it out driving lamp prohibits recognition of legible to approaching traffic. The hop and road conditions at great distances, and die its reflector are mounted on an arm and driver most concentrate on a definite area arranged to inanimate evenly the sign area. directly in front of him. Hence, pavement The lamp must be so shielded dot direct light traffic stripes are one of die more important is not projected above the horizontal and' aids to blackout driving; and center lines, glare is not produced in direction of ap fi lane lutes, and stop lines are the more im proaching traffic. The surface . brightness of I portant pavement markings. New designs for the sign, however, must be carefully limited \ stop lines have been developed since conven to avoid aerial detection Such limitations tional designs are invisible under'blackout have been determined fay aerial tests and have conditions. One design which has been found been mdndcd in War Department instruc satisfactory is a comb-shaped one which em tions to the defense commanders. ploys short longitudinal lines to obtain derired visibility. Reflectorized coatings added to existing signs provide a third type, of blackout sign. Although pavement markings may consist This fype of sign requires exactness of loca of paint (white being die most satisfactory), tion, birth vertically and laterally, smce.it is f a reflectorized coatings increase their utility essential to insure that the reflectorized coat many times. Reflector units may also, be ing will return , maximum amount of light W-/ w -VS.- sr\ i' . Street and Highway Traffic Section 93 incident on U from the blackout driving lamp Reflectorized anldets .and reflectorized leg to the point where readingof the sign is gings designed to be. wont around theanldes necessary; Reflectorized signs shotdd be give pedestrians a measure'.of protection. I legible for at least*50 feet when illuminated Since they are' worn as closetothe ground . by Ae/vdiide blackout-' driving lamp. The as possible, these devices wiH. retzim; the sign nihst not be moire, dan 12 feet from light from a blackout driving lampcat dis right edget of anytraffic lanewhkh it icon- tances op to 100 to 200 feet. : trolsandthe top -.of die' messagenotmore . ^ .. dan' 24 inches above die' rood crown. Curb parking restricts die'use of tfais'typfe of sign. Luminescent Materials . Exterior and interior-ifltaninated signs Finally, luminescent paints arid ^materials meat' be . used wherever" required legibility have been tboroogfaly investigated ins coo* cannot be obtained by reflectorked signs. jnqction with Adr application to traffic con- 'trbl during blaclo)uts.^ar Departn^ ex Blackoot Traffic Signals periments have fiat confirmed, however,many of. tbe. somewhat extravagant rianns made--, Extensive experiments have shown that for the use of luminescentj materials during the test way to modify traffic signal* for : blackouts.Most of these materials deteriorate blackout operation is to reduce tbe operating rapidly under exposure to sunlight and mms- voltage of die lamps to approximately # of taTO'The visibility of these , materials"after their rated voltage; since this method allows several hours of darkness is'veiy low/and return' to- normal ilhniiadon during other maintenance.is a big problem. ForAer de- pfriodtr The "ft should' never, be . vdopment in flns Arid will benecessary be or in such a maimer as to impair fore these materials become useful for traffic its usefulness during daylight periods. Black- control purposes. . oats, when ordered, as far as we know today, will be for the most part of temporary duration, and it is important.that all traffic signals /tetnrnio. normal as soon as possible to insure condntied safety of normal moveBMSOftv Effective use of aU Aese blackout traffic - safety and control devices depends net only upon tbeir design and application, but also Upon their mtelUgentnseby the public under very trying conditions, which a teat Mack-s out most assuredly, wiflprodnee. The factor^ A snail box-like device with a battery wfaidi nates blackout lighting at all possible operated lamp, in a small reflector, which is the .renariafa!ecatf)tlity. of the humaq. eye. ) flashes at intervals thereby giving a signal to adjust itself for. .vision rmder artmndy diatattractsattenddnatffiriancesiqito low levels of flluumatkm. The importance approximately 500 feet when viewed from the .of dark adaptation, main, be impressed on normal driving pastiotv bas beeii developed .all motor vdnde operators and all others for the marking of road hazards and ob who move oh the^treeb and highways during stacles'. during blackout ..Tins dance pro- blackouts. It is absolutely essential , to allow videsHght of.sach low. intensity that it is at least five mimrtfes, and preferably 20to 30 undetectable from tbe air, yet it. is adequate nunutey before: attentptmg to drive vehicles for use on the ground during btackphts. or moveaboutin a blackout. This is a neces-, An fllpniinated traffic baton which per sary blackoat-traffic control regulation. r . mits policemen equipped with them to give In this review of some of the highlight* legibfe.mdicatioiud^ to ap of the Engineering-Features of Traffic: Con proaching traffic is proving exceptionally trol, it ha*. beenPnecessary to anit niatiy^ valuable. The tetorinay be used during nor details wfaidi no doubt would interest traffic mal night- anfitioos as well as hi blackouts officials.,ThyWar Departnacnt, however; has - since die xfcvice is designed with reflector issued specifications giving all the informa buttons, imbedded ina plastic rod, which tion essential to- pfamnmg' a blackout traffic wffl rtaect bcflliantly the light from reg- control program Thor are as; follows: tdar headlamps. During blackouts, the plastic rod glows faintly Under light passed through Blackout Reqnirements for Highway a filter, -thereby- illuminating .flutes out in Movement the outer surface of the rod -throughout rits length. - Street lighting During Blackouts. pi M* i{ V . spwpeiwp -y i^iv^* 94 3I$f National Safety Congress.. Blackout Flashlights, Lanterns, and Flares Traffic Control During Blackouts Blackout of Buildings Luminescent Materials Blackout of Railroads The first six specifications have been re leased by thV.War Department. It is ex pected that "Blackout of Railroads" will be released within die next few weeks. Public dissemination of these specifications will be handled: by the Office of Civilian Defense.. The War Department in. releasing these specifications is interested not alone in the safety of vital miUtary -materials-and. opera tions, but is also deeply concerned with the safety of life and public property. It is -this phase of the problem with which..you-are most closely allied -in your work-'as safety engineers, and it presents a new challenge-- a challenge )vhich I am sure will be.met by the initiative that is. so characteristically American, and upon which we depend so much to win the. war. Enforcement Features of Blackout Traffic Control By IRA F. REEDY , Captain of Traffic, Osddand Police Department, Oakland, Calif. Anyone who purports to make an authori tative statement with respect to the enforce ment features of blackout traffic control based on our American experience necessarily is engaging in a considerable degree of specu lation. My city, Oakland, California, lies on the eastern shore of San Francisco Bay. It is part of a large' metropolitan area with a population of approximately 1,500,000. The city itself, with a population of about -400,000, is filled with large military and defense in stallations of every kind--shipyards, manu facturing plants, rail and water terminals and a host of other installations vital to the war effort. We are told this is a logical target area and a potential combat zone. Yet we. have had relatively little oppor tunity for real blackout traffic control prac tice because we have had only a few black outs, and because die military authorities won't permit practice blackouts. Therefore when we express our views and theories re specting traffic control during blackouts, we are indulging largely in speculation,--specu lation based on what we fear, with our fears based on a score of unknown factors. In Oakland we have a local ordinance from which I quote Section 8, which governs the movement of non-emergency vehicles during a blackout "At the commencement of a period of air raid alarm, the operator of any motor vehide shall forthwith BRING SUCH VEHICLE TO A STOP at die near est available curb or edge of the street, rood or highway off of die main traveled portion thereof, and die operator of such motor vehide and the operator of any street car, shall bring such motor vehide or street car to a stop dear of any cross ing, intersection, fire bouse, fire plug, hospital or other emergency depot' or area, and during die hours of darkness shall extinguish all lights therein . or thereon and said motor behide or street car shall remain so situated during die period of air raid alarm, unless directed or ordered to move .by a peace officer, highway patrolman or fireman." There is nothing in the Motor Vehide Act of California which governs the operation of vehides during a blackout, inasmuch as die Legislature has not convened since Pearl Harbor to enact any emergency legislation. However, the basic speed law, which is part of the California Vehide Cqde.fmpfafbe ap plicable to traffic conditions dunng ablackout upon the theory that blackout conditions would be such as to require the operation of vehides at a relatively low rate of speed. But there is no regulatory provision specify ing the type of vehide which might be oper ated, the speed thereof, die lighting of such vehide and ldndred matters. . So tor as federal regulations are concemed, we have proclamations issued in our area by the Western Defense Command, togethei with cotmd the pc little- i to da! Divisi dons 1 change they fa 1 If n nance it pro! ated vi The c be bro curb o the ma The are er follow! A. J B. erau sity G desif hide D. the i on d E. enga War Com tuall. F. diet Patr withi dons send: heall inath natio actua thej rhiis 3., Ukai. Street and Highway Traffic Section 95 with some material, issued by the defense to see that the movement of. private vehides councils. While these may be helpful from comes to a vstop apd to facilitate.-the `safe the point , of view of education, they are of movement of the emergency vehides which little use to die enforcement officer because have a job to do during the blackout or to date they lade "teeth." The California period of air raid warning. ' Division of Motor Vehicles issues regula tions from time totime, but these have been changed and modified so many times' that they have been of relatively little hdp. - Our own local ordinance contains a provis ion that such vehides most conform to toe uniform lifting regulation approved by die Department of Motor Vehides and the Cali fornia State Highway Patrcd for blackout Lavra and Regulations Covering Blackouts emergency vehides. Ihe California Highway Patrol has specified blackout lights for emer If reference is made to the municipal ordi nance above mentioned, it will be seen that it prohibits the operatiotrof privately oper ated vehides during the period of a blackout. The ordinance requires that these vehides be brought to a stop at theinearest available curb or edge of the street or highway off of gency vehides and so far as we know, most emergency vehides are equipped with these lights. All. vehides in our police and fire departments are so eqtrippetL My reference here is to blackout marker lights;'* similar to those used, by the military, and" I am not referring to lights used as sources of illum ination. the main traveled portion thereof. The vehides that are permitted to move arc emergency vehides which indude the following: All of the vehides which fall into the category of etnergaicy . vehides are certified by toe local civilian defense organization, whose certificates identify the driver and spedfy A. All army and navy vehicles. toe vdude. Where a private,vdiide is used by someone in toe service of toe civiluh de B. All vehides with United States Gov fense or Red Cross, it is provided with a ernment credentials indicating the neces suitable identification sticker for the wind- sity of emergency movement shidd. The State of California, acting through the Department of Motor Vehides, . C All authorized emergency vehides designated as such in the California Ve California Highway Patrol, issues stickers bearing the letter "E" to designate emer hicle Code. gency vehides. D. All vehides operated by members of the California State Guard while actually on duty. At the present time, toe approved blackout lights are merely marker lights which'do not provide sufficient illumination for the E. All vehides of volunteer personnd movement of emergency equipment with engaged in the operation of the Aircraft safety to driver, equipment or pedestrian. Warning Service of the Fourth Interceptor Command wbile such personnd are ac tually going to or from their posts of duty. The difficulty with most of these masking devices is that they Interfere with propter use-of headlights under normal operation. F. All vehicles certified by .sheriffs,-dis Unfortunately, the light which' Iris been trict attorneys, the "Califortriak Highway specified as a source iHtmunation for use Patrol, police chiefs, and fire chiefs, when 'on emergency vehides has not been and-is within the respective, territorial jurisdic not how available on the Pacific Coast This tions of the certifying officer as being es ~ is something that urgently requires attention. sential to the preservation of the public health, peace or safety or to the dissem ination of public information or to the Restrictions on Pedestrbms - national defense; when such vehicles are actually bong used in work essential to the public health, peace or safety. : Thus far there are no laws or regulations in our city or state, so far as I know, regu lating tiie movement of pedestrians during a liras, the job of the enforcement officer is period of blackout. No doubt we shall have .'-i *$' -^*i 96 31st National Safety Congress ( '- to rdy on the civilian defense block wardens assistance we may receive from dns mut dur and on auxiliary police tomaintain approp ing an emergency will be to assist in protect- riate control of pedestrians. iagpriaaryaacrgency router that are of We know from normal experience in oar vital importance to diemilitary;: city that lade of proper street Hfdmination is die reason whywe have bad a large num Communication Facilities ber of traffic deaths and accidents in certain parts of the city. Lade of pedestrian control is a decided handicap. We shall have to de pend heavily upon educational campaigns, safety council activity and the assistance of the wardens and aoxdiaiy police.': * - * J% j All persons who are engaged in the serv ice of civilian defense and Red Cross emer- genty sendee are ihrmsbed with necessary Theunavailabilityofdieradioduring blackouts wfll gready handicap our opera tions. We have been told by die Fourth. Interceptor Command that,the use .erf the regular nufidt as well as the police radio broadcast will hot be permitted during blackouts. However,, we can use telephones and xnotorized equipment as a means bf. comtntmieating between poods... identification arm hands and cards entitling diem to go about their dudes daring blade- outs. Them persons are adequately instructed by their own organisations and warned of the danger to pedestrians daring blackouts. They are instructed not to interfere with die movement of vehides, leaving control of ve- In Oakland thirty-two telephone communi cation points have been set pu.iAt each of these thirty-two" telephone communication points, a' motorcycle officer w2l5e>tatiooed so that he may act as a messenger-orp in that pardetdar area. hides to die police Rqdio vriQ not be allowed during a bladc- In Oakland wehave an l^xcdfentj police setup, under the head dffHeatenant of police assigned by die Chief.of Police to work with dvilian defense. These auxiliary police are assigned to posts or beats and these posts or beats are as near as possible within walking din*?T of their fro-ies. ont at the present time.. However, plans are under way for organizing all `ham' radio operators' in order-that they may .be avail able during Hadmuts or during'incidents. The Federal Commtmicatioas Gwuiiiitwnn has stated.fhat.they can be used if the Army does not rde them off die air. When that point isdeared with die Army, we.will know In die event of a blackout, die Chief of if the radio will be avaBibte. Police calls on the head of die Auxiliary Volunteer Police to send the required equip ment and men to die location of any incident With this background in which I have enaeavorea to ocjctidc tnc unocnjini tiro* don, we may now consider some of die prob The- head of the Auxiliary Volunteer lems that confront die enforcement officer. Police contacts die section leader or leaders as the case may be. The section leader or leaders send out messengers to contact die mm and notify diem to report to die scene or location of the incident Our motor vehicle laws, both state and local, are peace time laws thatwere never de signed. for war time conditions. What price the arrest of violators by dm traffic`dfauion if there is ho adequate statute or admhds* In the event it is necessary to move equip trative reguladon to govern when .the vio ment and personnel any great distance, ar- lators face the court? rangements have been made with the Yellow Cab Company which provides taxicabs for It would seem that the Presidential war the movement oi men and equipment This > time powers would be sufficient clearly to de is without cost to the City of Oakland or to fine speed and other limitations and regula die dvilian defense setup. It is a contribu tions to govern the movement of-ail vehicles tion on die part of die company. during, blackouts, especially in a potential combat 'node,, such as the one In which my A military police unit is operating in our department operates; The job is definitely ooe dty with various pieces of rolling equipment oi coonfination, a .job which has. not;been the personnel being trained for the purpose ,ddbe, but which wnri be done if the enforce- of handling traffic and convoy*. The only / ment-officer is ever to do what is expected of'him We move d cqmpm move i wutj ids UK definite of erne prattes tioos p provide the ma Madox dduie_rid:n-r-gy require hardly or a m Trafi operate would I officer. Cigna! during the effi time an titan d the pra die pet ntcessa perhapi In oi out rot vehicles require fadlitai equipm could t cross ts we can If wi which it wod ficers (< hope o solved mg.the for nor Due a>osn^w y iy*i Street and Highway Traffic Section 97 of fltttfc selected by the Military aire unknown, we We know that emergency vehicles must } move during blackouts.. In nonnal times, fire equjpment,police equipment and. ambulances move at ahigh rate of speed-Fires won't wait, Broken bones and ruptured Mood ves-, sds wotftwait But during blackouts, with are not able to set up primary routes for emergency vehicles. We have attempted to solve this fay setting up a. flexible system of primary routes and bypasses, so'we wifi be able to handle any condition that may arise - during an emergency. definite Uutitatious on the equipment of emergency vehicles, wc are heed with the Personnel Problems problem of moving vehicles as fastas condi tions permit. I. fed that the sooner we are provided with driving lights which will "emit the maxinium flltimination permitted ,daring blacdmutr^ tte sooner we w3l be able to. train the drivers of these vehicles hr safe, operation Airing blackouts. Tins is certainly.going to require practice; and. without practice it is bhfljr hir to expect a maximum, of safety or a maximum of required speed. ' When the first call came out from the office of the Traffic Division for motorcycle riders 'during blackouts, to work as volunteer auxiliary traffic officers, we found tint; we had 993 registered motorcycle owners in Alameda County.'' Gif tins total^ SO werie registered in Oakland. These520wAecontactedthrough 'the mafl. As a. reMV 115 came into the Traffic Division and signed up^which gave us a woridng unit of that number; They were .fingerprinted and assigned to patrol Traffic lights r> ' . posts for tramsng and duty. Traffic lights and signal*^** they. could be In July of tins year, 1 shade a check, the operated satisfactorily during blackouts, result of which,was surprising. Of the 115 would be an fnqprtant aid to the enforcement men assigned to patrol posts; exactly 54 were_ officer. However, properly to mask traffic available in case of an emergency, maybel signal lights to permit their safe.operation. Many had gone into the armed, services,^ Airing a.blackout almost completely destroys many had taken jobs in defense industries "" the effidengr of the. fights for. normal day away from Oakland. And--as'a remit .of time and night time use. Accordingly, rather another check less,than a month ago; it was than tints limit the efficiency of the fights, found that less than 24 of tire original 115 the practice basbeen to turn them off dining .were now avaufabte. Of that 24, 'more than } the period of blackout While this may be half were subject to call by the draft board. necessary from a practical point of view perhaps, it is nevertheless regrettable. ^ Thus far we have lost eight key man to the military, and with competition offered by In onr present disaster plan, we are laying high wages in the shipyards and industrial out routes for ambulances and emergency, plants; the task- of replacement is diffidili vehicles of all kinds. In addition, the Army Satisfactory policing of traffic during black requires certain streets to be set aside to out conditions requires trained men and it is facilitate the movement of military vehicles, readily apparent that the enforcement officerTM! equipment and ammunition trains. If we will be handicapped by loss of personnel. cotdd barricade these streets and prevent all cross traffic, all would be weH,but we know we can't do this cootinuousiy and it will be < necessary to provide for cross movement We have a special problem in our city re lating to blackouts. You are all familiar with the. yellow. Hue and red alerts. Also, I as sume all of yon know of the heavy volume If we had satisfactory traffic signal lights of traffic that moves across the San Frail- which could be operated during blackouts, clsco-Oakland Bay bridge which connects the It wbuld free a large numbef of traffic of cities of San Francisco and Oakland. The ficers for other general supervisory duties. I practice la to dose the bridge to traffic upon hope our traffic engineers will be able to a yellow alert. However, a yellow alert is solve these problems for us without destroy known only to police and civilian defense ing. the efficiency of the lights and signals authorities. for nontud'operatioa. The net result is tint we have a heavy flow Dae to the fact tint rentes which will be of traffic to the bridge approaches .on the 98 31st National Safety Congress east side pi the Bay, from all adjacent high ways and streets and this causes a huge traf fic jam, backing up from the east shore toll gates. Our problem is to divert this traffic at points considerably removed from the main bridge approaches in order to avoid these large concentrations. It is quite. apparent that if an attack came with -these large ac cumulations of vehicles jamming the streets from curb to curb, the risk to motorists would be tremendous. It is hoped that by means of radio control cars, traffic can be diverted and kept away from areas of heavy concentration upon a yellow alert I really fed that it should be possible for. us to work out with the military certain pre scribed periods , of blackout,^ so we could actually test our various plans to deal with die movement of vehicles under blackout con ditions. This problem is as yet unsolved. . Prolonged Blackouts The type of blackout we have been con cerned with on the Pacific Coast is entirely different from the continuous blackout in England. Here, the so-called blackout or period of air raid warning is die period be tween the sounding of an audible air raid warning and die sounding of the "All Gear." Shortly after thq^ declaration of war on December 7th, convoys became a very im portant problem to the traffic division. We found they were using forty-five per cent of our personnel in connection with die military problem. With the installation of a military .police unit in our city, at this time we have no problem and convoy requests have been .cut to a minimum Suppose an enemy target or unidentified enemy aircraft requires an air raid warning' signal at nine-thirty at night This would mean all non-emergency vehicles would draw to the curb and stop. Let us suppose the "All Gear* did not sound until ten o'dock on the following morning. This would mean over twelve hours of blackout or air raid warning period. Ambulance routes have been hud out and connected with hospitals and Red Cross cen ters throughout the entire city, using main - arteries which we believe will be less desir able for the military. Each ambulance driver has been given a route map with printetTin- . structions that must be followed. }I I have already indicated that the military authorities will not permit practice'blackouts. While we can have drills. Ifeel the real drill should be in an actual blackout As it stands, no ooe knows when a blackout will come or how long It will last Since Pearl Harbor, we have had four blackouts and they lasted from a few minutes to three hours and 10 minutes. _ The question which concerns me is this: .Would the motorists continue to park their vehicles that long? Would defense workers stay away from their jobs? Would people abandon their vehicles, perhaps lock them and'plan to return later? . They had such a situation in Los Angeles once and I am told they had a traffic snarl the like of which had never been seen pre viously in that city. I am wondering if we should not permit die movement of vehidts during a bldckout and before there has been" any enemy action. I fear we may create conditions beyond the tolerance of the motor ist and that he may decide to drive bis car during periods of prolonged blackout. War Production Problems of Engineering and Enforcement in 1 Transport and Traffic Control ' By HALLIE MYERS Dir. of Traffic, Indiana State Highway Commission, Indianapolis, Ind. The traffic pattern has been greatly. New plants built to produce war supplies changed. Roads and streets formerly carry-' have been built in suburban and rural areas ing a mere trickle of traffic now cany served only by roads and streets designed swollen streams. Workers going to and - and constructed to carry small traffic volumes, from work constitute die great bulk of tins. traffic. Such plants develop high concentrations of tn conct direc seven two i On diana toou lane 1940 1940 day. day i per c An whid daily. ers i two-) Coun 700 li an ac tant was i Su fic yi creat at a < have - traffii On ties < Mate we at from Pe that, able, rapid Pe learn the ' ,'contr alwa; been cases tary Th cally trans with met ' all st Street and Highway Traffic Section 99 of traffic at times of shift changes and these and group riding. The inherent weakness of concentrations often extend for miles in all these two projects is the fact that compliance) directions. They occur three times daily, is purely voluntary. This method of approach seven days a week and always one and often ignores the time honored fact that "Amer two are during the hours of darkness. icans will do \vhat they have to, when they One good example of this problem in In* diana is an ordnance plant constructed-prior have to." Some means must be found to make compliance mandatory. to our entry into the war. The one rural two We have worked out some beautiful plans lane highway serving this area in August, for staggering of hows in cities only to have 1940 earned 650 vehicles daily. In November^ them fail, because one plant refuses to change 1940 this had increased to 7500 vehicles per its hours. The mechanics of working out a - day. Bjy March, 1941 it carried 11,000 per staggered hours plan are basically die same day and it now. carries an average of 8,000 everywhere and are not too complicated. Such per dayi. programs must usually be planned to care for Another example is a munitions plant which employs in excess of 17,000 workers duly. A survey of the origin of these work* ers revealed sane astonishing huts. Over two-thirds of the workers lived outside the County in which the plant is located. Over 700 lived 70 miles or more from the plant and an additional 1500 lived 50 miles or more dis anticipated conditions which the average per son does not readily recognize or foresee. .Since such plans entail changing the daily habits of many persons as well as the pres ent organization of several industries and their existing contracts with many unions,, it is only natural that there should be con siderable resistance^ tant The average round trip for all workers Mndt preparation and selling is necessary was in excess of 60 miles. , to put such programs over and it is doubtful if many will be inaugurated in time to fore Such conditions have generated great traf stall transportation difficulties.' On the other fic volumes where none existed before, often hand, we believe ihat-by proper planning and creating severe traffic problems in small cities preparation a plan can be devised which will at a considerable distance from die plant, and be accepted when the transportation problem have completely revised our city and state' . becomes more acute in these cities. To hope traffic patterns. for their adoption, generally, before such a On every hand we are faced with scarci stage is reached is being over optimistic. ties. of die four M's. Money--Manpower-- Materials and Machinery. As a consequence, we are forced to extract die utmost efficiency from existing facilities. Group'riding; swap riding, call it what you -Will is a beautiful planwhich will save rubber and spread our transportation over a longer period. Like staggered hours^it lacks the one Perhaps die first thing we learned was essential feature to make .it work--compul that, even if money and materials were avail sion. able, we could not construct new facilities rapidly enough to meet (hanging conditions. ' We have in Indiana a good plan for swap ride organization. We have used this plan Perhaps the most important thing we have in several dties. Mechanically it works beau learned, and this is worth remembering after tifully in collecting the necessary information ' the War, .is .that . daborate and expensive on which to base the actual organization of control devices and other facilities are not swap ride groups. Up to date; it has failed, always necessary. Regulation can be and has dismally, to secure the anticipated results. We been very satisfactorily substituted in many , believe gasoline/rationing will give it the cases and is meeting a great-amount of volun necessary push. tary public acceptance. The scarcity of rubber has caused practi cally all stabs to embark onHsome sort of transportation conservation program working In a further effort to conserve cars, tires and manpower, we have instituted two. other' projects: with federal and local agencies. These have met with varied degrees of success. Nearly all such programs include staggering of hours . Better Use of Streets. Public Safety and Speed Reduction.  - . .......... , . pppipifpisw 100 31st National Safety Congress We have provided a state technical advisory traffic, most of which are found in every dty group which was loaned to interested cities and none of which require large expenditures to work out these projects for them. This to correct are these: . stemmed front our established policy of tmng existing trained trafficpersonnelon projects I. Improper parking and double parking: of immediate national importance. . 2. Inadequate or poorly located bus load These two projects have proven very, satis ing zones. factory and useful and oar recommendations have' been well received^and uniformly well . 3. Parking on narrow streets. executed hy the cities ah^we lefl^Blem. - 4. Improperly timed or unwarranted stop La the better use of streets projects'wewere and go signals. dealing with an official- city administration , ' 5.-Improper distribution of traffic load. ~\ which saw an opportunity to get sane traffic engineering at no cost We offered a quick but fairly comprehensive traffic survey of the city and made definite recommendations for -6. Irregular and confusing intersections. 7. Streets blockaded for repairs to utilities. changes at specific locations. None of oar recommendations have involved the expendi : 8. Wandering of vehicles cm wide streets. ) ture of much money or the use of critical ma ' 9. Permission of parades on vital terials. It is strictly a war-time emergency program aimed at moving men and materials to and from war plants and substituting plan 10. Heavy turning movement intersections. ning and regulation for money and materials. II. Disorderly pedestrian practices. Oar plan is first to determine what we call the war traffic network of streets, (the pat tern of which has largely been determined 13. Qtu^ing by tiie choice of the drivers,tbemsdves) then i 14. Too many stop signs. to concentrate cm this network all possilile . maintenance and control personnel and equip?" 15. View obstruction at intersections. meat We believe it desirable to encourage concentration on a limited network rather 16. Frequent street car and bus stops. than to disperse the traffic throughout the entire city street system and thereby require dispersal of personnel and equipment to han dle it A few police officers, strategically located can control one street carrying 15,000 vehicles per day better than five streets each carrying 3,000. Repair crews can keep one street in repair easier than five. Here's an other that is seasonal and vitally'important Snow and ice can be handled more qmddy Each of these suggests its own solution to the traffic engineer, and involves the use of methods and techniques with which he is fa miliar. Time does not permit .tiie enumera tion of the remedies recommended. Most of these things are apparent to 'anyone looking for them but it is surprising bow often they are overlooked because we are looking for something spectacular to do. and effectively on a limited network. Fewer Fdr police departments we have in our control devices are required. . recommendations followed dosdy the emer gency traffic law -enforcement program of tiie Having adopted the policy of selecting a ' I.ACP. limited but adequate network for attention and use, it then becomes imperative that tins The practice originated in Indiana of po network be kept open for free movement at lice departments sending copies of arrest and all times and that every feasible plan be used wanting tickets for moving violations to tire to extract more efficiency from it ' rationing boards, has bad a very beneficial Speed and delay studies were run to deter mine tiie points of delay and these points received special attention. effect The same engineering and enforcement policies are used with reference to rural state highways. A state war traffic network was Some of the most common impediments to determined and our efforts concentrated on these' Sin mater rural bad ai Oure indud Exc Elil towns Avt Pro Coo o We types source dace 1 will x materi of ma coma prodm tnasp ods d Defi plants nanus tional prop** necess import coopex to see ing tii proper fact ti atinn. materi Jems i fairly lose si presen be pro This a and, a Iems. / a Street and Highway Traffic Section ^ 101 tbese'to prevent accidents and delay. Since averyhighpertentageofvital war materials is huded by truck,a dday oa a In all of this we have cooperated closely rural highway,or in a distant city is jnst as with state and local police officers. We have bad as. one withina block of die plant itself. recommended and; seemed concentration of Oorefforts to expedite traffic on this network enforcement personnel on rentes where and indnde: " at times when tbeywill do-die meet good. Fwllwif nuintwuiw Eliminating; unnecessary dday in matl towns. ' Avoiding long and difficult detours. Prompt stow and ice removal. The war has given die traffic engineer and die enforcement officer an opportunity to demonstrate their ability. City govemments have adopted and the -public las accepted regulations which'-a'-year:ago- wonld have seemed impossible. The good effects are be ing demonstrate daily. By CAPT. FRED H. GRABBE O St. Loins Police Dept, St Louis, Ho. We have die rnanpower to produce aH' In order to raid up adeqmtfe'transporta- types of War materials arid we . have the tion facilities, traffic engineering most again sources of raw materials, from .which to.pro occupya lcey position in this program. "This duce die implements, of war. -However, both problem is one dot commands die fullest will ahraflurlittle unksswe can get die raw cooperation .of engineering and law enforce mafjpffatf' quietly and''safely to their phw ment officials of every community. of mannfactnre and to die people who. will convert nqtmtU mfft ihe finished The educational feature of the program product Thts invohres a serious problem of transportation which cads for revised meth has proven its value by the fact that mo torists, upon request, have materially re ods of fawenforcement and engineering. duced usingjthe arteries of traffic in our; defense areasiSnrveys can be made to show Definite routes to and from oar, defense the number of employees of each plant who plants must be established and then properly travel by passenger air, ,bos or street car, maintained. .Since the construction of addi- and tiie actual routes used by these workers. tional routes, will be held to a minimum, The survey would also show the number of proper maintenance of routes becomes more vehicles serving each'plant in the hauling of~ necessary'. In this connection we; find it very both raw. materials and finished 'products:, imfnr(3nf ,|tial the h** iwfnrmiiwit ftfliftalu The survey would farther show the time of withthe * departmetis movement of tbe. bolk of both workers and to tee dot die rules and regulations regard materials an$accordingly, die police depart ing' die flow of traffic .of. these routes are ment can reinforce its manpower at these properly observed. We'cannot discount the . peak -periods to expedite the movement of fact dot mass production is. mass transpor traffid- tation. ThU mdodcs transportationaf both materials and workers. Ifany of-die prob In St Louis we have materially aided oar lems in this connection have-been inirfM transportation problem -by getting die offi fairly writ up to; date. Bat we dkKdd not cials, of our larger badness establishments lose sight of die fact that our production at - to stagger die . working- horns of their em present is bat. a small .frattim of wbte. will ployees. Tins has greatly reduced our traffic be produced within thehext twelve months. problem by eKpuhating a conflict rbetweefr Tins means more material^ more manpower, workers going to .their-jobs at: defense, plants and, accordingly, bigger transportation prob and workers going to dteir offices and mer lems. ; cantile establishments. Several of our larger 'O' - <J Tr r 102 31st National Safety Congress \. department stores have gone a step farther hazardous condition at the point in question. to help solve the problem by opening their Our men in St Louis are doing this con stores one night a week to give our defense stantly and we ,are getting the cooperation plant workers an opportunity to shop with* from our traffic engineer and the department out conflicting with the crowds of daytime of streets and sewers. shoppers. This called for a change in the assignment of traffic officers to handle this type of night traffic and we were agreeably surprised by die success of this plan. In St Louis-we. have a sergeant who has been handling traffic education for the past six years. He has two weekly radio safety programs on which questions about traffic, We hope to solve our problems through sent in by the listeners, are answered. Safety the very dose cooperation between the traf lectures are given to civic dubs, parent or fic engineering department and the police ganizations, commercial fleet operators and enforcement officials of our dty. This coop ..tiie like. Then a schedule of meetings at. eration can be done in several ways. Police the 204 elementary grade schools is main officers, especially traffic and motorcycle tained at which safety practices are discussed officers, upon observing some traffic hazard, with the children and the members of the should make a detailed report of it to his school boy patrols. .The main purpose of commanding officer. A copy of this report safety education work is to point out to the would be forwarded to the office, of the dty citizens that the arrest of motorists is secon traffic engineer for his information, and rec dary hi the minds of police officers. Officers ommendation made to the department of would much rather have drivers obey the streets and sewers for correction of the laws and thus avoid arrests, because obedi hazard. The hazards I am referring to might ence to traffic laws means lower accident be--the need of painted pedestrian cross frequency. There are, however, some peo walks--the erection of slow or caution signs ple who just won't learn to be safe through --or perhaps the lack of stop signs or other tiie medium of education. They have to be devices or signals which might eliminate the taught by enforcement. ! * Evacuation Planning and Operation | By LT. COL. C. L KEPHART Chief of Evacuation and Transportation Section, OCD, Washington, D. C.' While we all hope that there will be no bombing of our dties during the war, it would be gross negligence if bombing should occur and we are unprepared to care for tiie situation. Evacuation normally would be ordered only (a) in consequence of persistent bombing of military objectives or (b) to re move the population from certain coastal re gions in the event of threatened invasion. No evacuation is planned in tiie event of sporadic or intermittent bombing only. An other type, which should be prevented, is panic evacuation. ^ ! institutions. This is known as "selective" or "priority" evacuation. The mere moving of essential workers from the hazardous areas to other parts of tiie same dty or adjacent regions from which they might reach their .daily work is what is known as rehousing and is wholly a local problem. . Mass evacua tion would,occur only from certain designated areas along tiie coasts in the event of,threat ened invasion,* in order tint' tii^ residents might not interfere with the maneuvers of the contending forces. In tiie case of persistent bombing of dties there would be no mass evacuation from the area, affected .but only removal of selected groups of non-essential civilians, such as mothers and their children, expectant moth ers, sick, aged, and infirm people, inmates of orphanages, and perhaps inmates of other Pre-evacuation Conditions' V-: Prior to the evacuation of seledted groups because of persistent bombing of military objectives in an area, there are senious conditions caused by the bombing itself that first must be relieved. There tiie local U.S. Citi zens all o! firem gencj recon repaii order of ei dead in cc alt su atdy and i with range Evac Tin bazar subje< imatel of sue sdecti while who i the sa be dir daces or ra! areas the to nursei sary. Int in wh such a camps and < would the st supers but tit by vai servia direct* Healtf moval, these would homes. The f m* iUixitU'.la..'.',. ; r Street and Highway Traffic Section " ' 103 zens' Defense Corps enters the picture with for evacuation of non-essential civilians in all of its resources, its wardens, police and rime of need is a serious one. The Office of iirameri, emergency medical service, emer Defense Transportation now has .control of gency feeding and bousing, gas and bomb all commercial transportation, whether bus, reconnaissance, and engineering and utility track, taxicab, or tail equipment; and the repair service. Not until some semblance of transport officers on the staff of the state order had been restored would die question defense coordinator and the regional director of evacuation of non-essential civilians be of the Office of Civilian Defense would look decided by the military and civil authorities to that organization for whatever equipment in cooperation. If approved, registration of might be needed at the designated places and all such priority groups would begin immedi times. The evacuees would be directed to as- r ately under the supervision of die regional sembly stations, where they would be taken and state evacuation officers in cooperation aboard the equipment that would transport with the transport officers, who would ar them to the reception areas. range for the necessary transportation. In order to facilitate the movement of Evacuation, Neutral, and Reception Areas either troops in military convoy or the evac uation of non-essential civilians, the Office The determination of the vulnerable or of Civilian Defense is now engaged in col hazardous areas in industrial parts of dries laboration with the"Office of Defense Trans subjected to bombing is not difficult Approx portation in organizing motpr transport con imately 20 or 25 per cent of the inhabitants voy units among the larger motor carriers of of such evacuation areas would comprise the the country, especially in the coastal and other selective or priority,- groups to be evacuated vital regions. Schools will be operated for white the rest would be essential workers training the leaders of these, transport units who would remain there or be rehoused in in the logistics of convoy movement This the same region. The evacuated persons must activity is meeting with favor in the industry, be directed to assembly stations at designated as it improves the esprit de corps of the em (daces and rimes ahd be transported by motor ployees of the companies. and makes them or rail carriers to predetermined reception fed that they are having a part in the war o areas some distance away, depending upon effort ' the territory. They would be accompanied by nurses, teadiers, or other aides when neces Our office, is now negotiating with the Of sary. fice of Defense Transportation to insure the immediate availability of required transpor- In the reception areas they would be placed tationequipment in the event that the district in whatever accommodations are available in manager of that agency should be inaccessible such areas, whether private homes, hospitals, ^ for several hours when many injured people camps, or elsewhere. This work of placement might be ready for transfer to outlying hos and care of evacuees in reception areas pitals and were awaiting only transportation. would be under the immediate direction of~:> The plan contemplates that the transport of the state evacuation officer and the general ficer on the staff of thecommander of the ' supervision of oar regional evacuation officer, (oca! defense corps shall act in such emer but the actual field voile would be performed gencies in tiie name of the district manager by various, federal and state agencies whose of the Office of Defense Transportation, on services would be integrated under regional the advice of a local transportation commit ' directors of the U. S. Office of Defense, tee if desired, and immediately afterward re-., Health, and Welfare Services. In the re port to the district manager of that organiza- 0 moval, placement, and subsequent care of tion what he had done in this way. these people, federal funds would he made ivahKe% the Federal Security Adminis trator. Eventually, of course, the people Traffic Control would have to be moved back to their former homes. (V ^. ' '- Transportation In order that there may be no traffic con fusion on the highways, it is necessary to have surveys made, of what might be called;, primary, secondary, and tertiary roads, which The question of adequate transportation will be properly marked. It may be that > - cr- 1 jsft *::. 104 jtfif National Safety Congress the army will be using the primary highways for all state and local traffic police anthqri- and that the secondary, or tertiaryroutes ties to offer then- services to state and local will have to be used for evacuation from and defense councils- in .connection with their die movement of civilian supplies to such af- evacuation planning! c <> . fectedareas. These maps arebeing made by the various state highway departments and The Office of Civilian Defense is nowde- cooperating agencies, including the State vdoping a plan by which ft is; hoped that Highway Traffic Advisory Committee to the partial blackouts or inland dimouts may be War Department, and in time of need they bad on the blue signal when bottle airplanes will be in the hands of military and civilian are in .the region imt. hot moving ,in. the di authorities who will require - diem. Thus, rection, of places where such partial black marked flexibility in die movement of traffic out is in effect If the.airplanes should sud over die various highways should be assured denly tura in tire direction of ary such city, ' the initial blackoutcouldthenbecbanged During such emergencies, the state police immediately into a full blackout In this way, will have a very serious task in preventing substantially normal social activities might confusion'and panic evacuation on the high continuein snch cities but at somewhat re ways. Among the earliest people leaving the duced speed. ' city will be voluntary evacuees, who nor mally will be. permitted to move to destina ha closng, it should be reiterated dot the tions that they have in mind upon doe reg most serious phases oTtraffic cbotrol^if the istration, and it will be one of the dudes of need of evacuation -of civilians should ever the police department to control snch volun arise, is that of the prevention and control tary evacuation. In this .Connecticut, reference of panic .evacuation, and on tins subject it is made to the btdletin.of the Office of Civil is the "responsibility of the state and local ian Defense entitled "War Traffic GootroL" traffic authorities in cooperation with the There must, of course, be proper coordina civilian defense Services to plan and ade tion between the city, county, or state police quately,develop their forces for the" preven and the military authorities in connection tion of panicky movements of people oat of with convoy movements. It would be well cities during arid following etiemy action. Coordination Among Agencies Planning for Emergency Traffic Control By PROFESSOR J. I*. LINGO Director, Public Safety Institute, Purdue University Home front planning activities during this war demands the working together of many agencies and services in complete harmony. No better word seems to be available to describe this problem than coordination. - The Office of Civilian Defense as an agency of our government has devdoped and recommended effective procedures for mini mizing tiie effect of enemy action. -Sadi ac tion is most likely to involve the bombing of vital areas resulting in the disruption of traf fic and tiie destruction of lives and property. All of the measnres necessary to combat the efforts of enemy bombers require the high est degree of planmt^r and coordination. Local politics, petty jealousies, individual or group credit sedring, disputes over con trol or jurisdiction must be allowed to play no part in tiie program of emergency plan ning or operation. Unfortunately the men manning enemy bombers have no. regard for local shortcomings whether they be of a per-. sonal or technical nature^When bombs fell, unified centred and operation over a wide area is essential. One of the major .problems in which complete" coordination is necessary is:, traffic control. / ^ Efficient traffic control combined until ef fective planning and coordination means that the civilian services will be able, to reach all parts, nf the emergency area without undue delay or aeddent The police will be re-, sponsible for providing most of tins traffic control and tiie police, more than aiy other agency, must assume the responsibility for tiie. proper coordination of emergency plan ning. blad probi twee ices: V* cities had; . traffi state Ingi up ti mart deter able; ntflit locate atnrit to bi veffic have ; gram ignat into' indns and'good in ms Ordm been In bad. vital jecthr from. mftf, police cafes plana The i done - oc--oemru-e*t ! sheet! '- boiirg--etuO ofal police by tin Wb tfe1 : agefe; Street arii Highway Traffic Section 105 mog. Since moist bombings occur at nigbv blackout conditions must be' considered. The problem requires complete coordination be*' tween traffic Officials, civilian defense serv ices and the militaiy services. make up-, for toe lack of ^proper coordination in previous planning. hStwecn toe various services. Such planning must be completed before toe emergewyoccurs^ .. . Basie NeediT^ LackoT Coordination Jl , punng a recent tnp vbkb covered many cities, in' Some twenly-sx States, the writer had an-.opportunity todiscass the matter of . traffic control planning with many city and Based on observations, in many cities and on toe experience in Great Britain and Hawaii.toe following general suggeskms'should .prove of value.to all. police-departmentii intertsted in being ready for enemy action: , state officials responsible for such .planning.. lit. general, die' police have done a good, job 1. Select, .study and condition routes, for up to a certain pant Mott: police depart- emergency vehicles, mflitary vehides and ve - moils .have made surveys .of their city to hicles used for evacuation or other special determine what emergency equipment is avail* ' purposes. All agencies using any of tone aUe; where toe vital industries; supplies, routes toould be familiar with than and with utilities and-'other important objectives are their limitations. located;-they- have organised and trained auxiliary- police; they have-selected routes 2. Recruit, organize and train a reserve tobeused by emergency vdndes, ndtitary traffic unit for use in emergencies. These vehicles and tor evacnation of chiiliuis; they men may-be used to supplement regular of have- worked' (tot detailed assignment pro* ficers at critical intersections, atibottie-nedc ' grams fortoe. police personnel and have des points, along emergency routes and at other ignated toe. vital areas of toe city. Going points as needed. into tiie aty fire departments, vital defense industries, civilian defense offices, hos^tals 3. Work out detailed plans of assignment and various public utility offices the same for various types.of anticipated emergencies good phoning wonc was observed. However, and inform all personnel of these plans. in many instances tikere tear HHU or no co ordination fn 1he fiamung work that had -4. Besure that advance pbins for coordinat ) born done by the various agencies. ing the work of the police &d other agendes.- are complete and fiat there is a minimum of In many cities toe situation was extremely wasted effort and overlapping functions. Take bad. Police routes, for example, leading to a the responsibility for serving to coordinate all vital defense plant likely to be toe first ob planning affecting otherxservices. jective of a bomber,`were entirely- different frpm. the rootes sdected by die. fire depart . 5. Take the leadership in instructing and ment, bogibt or other- services. Usually toe educating'the civilian population in tot to police, department did not know or did not do ton the air-raid comes. Much panics caiewbat.routes toe firemen or other services hysteria and congestion can be relieved if the phoned to use when an emergency occurred public knows trial to do' in all cases.' Select The most common attitude was tint we.have those things that will hdp.your- traffic 'con ' done -our part pf toe work,. now let them trol operations, such as, pedestrian actions, come to ns to find out about our plans. It is driver; procedures, eta, during an air raid certainly true that route maps, assignment - - and. use every means of instructn^the gen > shcets or other, pianning materials--no matter eral' public. Air raid wardens can be esperial- ' hdrir' wdl erecuted^-witl be of no value In ly hdpfol in this regard. ^ 1 getting fire -fighting' equipment to toe' scene of a bondnng iftoey are kept m a drawer at The pdice'are an dd and respected senr-= polke headquarters and have neverbeen seen feel The pnblic expectsmore from than, in - by toe fire department or otoerservices. the civilian defense. program than ficomltty " ` * T# ' * 1* - * ~ other agency. Improper steps are not tafixai "When an emergency occurs toe.locaff con- for coordinated i>lantting and operation they, tftd 'Renter, serving as toe .' coordinating note ton any other service, :.WiH be hdd ageni^foractnaloperations, ouido^ttie to' le for whatever may happen. A..,-'-ivV -T'.- 106 31st National Safety Congress THURSDAY MORNING SESSION October 29, 1942 GROUP SESSION ON PUBLIC SAFETY EDUCATION Presiding:--Herbert B. Simpson, Executive Dir, Utah Traffic Safety Council, Salt Lake City, Utah Educating the Public lor Voluntary Observance of Speed V- Restrictions By LINCOLN H. LIPPINCOTT National Secretary "Not Over 50" Club, Consulting Safety Engineer, Lumbermen'! Mutual Casualty Company Automobiles are important to our war ef fort Once we could truly boast that this was the only nation in the world that could evacu ate every man, woman, and child at one time in private passenger automobiles. That state ment can no longer be made. Our enemies have done that to us. If they could immobilize America they yeould increase our difficulty of winning the war speedily. Keeping automo biles rolling is not merely to provide con venience for our people. It is a war MUST 1 Automobiles have another vital relation to our war efforts because they have contributed and continue to. contribute largely to the destruction of material, man-power and morale. by voluntary action. This voluntary action makes and molds public opinion, Public opinion not only, supports enforcement but it makes enforcement physically possible in two ways. It reduces toe number of individ uals who must be apprehended by the patrol authorities and it applauds the penalties as sessed against those who will not conform. In normal times policing force must be con sidered in relation to toe area to be .covered. This has special meaning when forces have been depleted through losses to the military or to industry. Industry is in .a position to compete financially for the dolled officer. War brings many new and vital duties tint must be discharged by the police organization. The causes of these losses are manyj but speed continues to be the outstanding cause. Speed reduction is of special importance now because speed regulates the length of time our cars will be usable. The administration has asked us to make 35 miles an hour the top speed throughout the entire country. This measure is primarily designed to lengthen the life of automobile tires. We might well re gard it as a ceiling on the price that we will now pay for personal transportation. Our problem then boils down to this: How can we keep 40,000,000 motorists under 35 miles an hour? Three methods may be used; enforcement, public opinion, and voluntary individual ac tion. Voluntary action is the bed rode on which the others must be built We cannot get aroused public opinion until a portion, and a rather large portion of the people are willing to follow the restriction The size of the police force becomes of par ticular significance'when we relate it to the number of miles of highway cadi patrolman would have to cover. If we assume that all men are available for duty and are working on a three shift basis, each man in Illinois would have to cover 84 miles, in Indiana 138, New York 42, and Connecticut 33. Even where the mileage assignment is the smallest, under actual operating conditions many mo torists will seldom see a patrolman on the road. The volume of traffic also has a dedded bearing .upon this problem. As toe volume increases, speed reduces. Increased volume in normal times was accommodated fay increased highway width. War-time shifts in traffic patterns, because of construction difficulties, cannot be provided for as promptly. Volume increases now demand more patenting man power. The police job becomes largely the protection of pedestrians, toe unsnarling of C- i Street and Highway Traffic Section 107 tangles, and the expediting of traffic, rather than the apprehension of speeders. Particularly significant is die fact that speeding violations nay occur at almost any point on die highway system. It is also a most difficult charge to prove. The officer most not sot a trap for his victim. When his mere presence on the highway does not cause a redaction in speed, he most actually dock the violator for a distance sufficient to estab lish the evidence of violation. If not over 35 is to be. made effective, most of us must become our own policemen in our own cars. We mast form habits of self-discipline. Habits are the result of learning processes. These processes may be planned and guided to a desirable end. They may be haphazard and accidental and the result highly undesir able from either an individual or community standpoint All education is a habit building process. Education for voluntary obedience is a more complex problem than is the estab lishment of certain physical skills. Tins bet has frequently been overlooked and explains why some of the best drivers from the stand point of knowledge of operation of a motor vehicle or muscular ability to put tins knowl edge into use are not our safest drivers. Self-discipline arises when there is a con flict when choice of action is possible. Then tiie long range value is opposed to the short value. The eventual good must be measured against the immediate benefit Individual sat isfaction must be compared with social good. Personal whim must be balanced against ulti mate objective; Emotional instincts must be conformed to reasoned plan. Maqy of flie usual educational steps may be used in developing self-discipline. The mo torist must be brought to know the facts. He must be reminded of these facts; but most important he must be motivated to act in ac cordance with them. Undoubtedly great progress has been made in bringing to the motorist generally factual material such as the affect of speed upon braking distances and striking force and the relation of his own reaction time-to his rate of travel. Even before the war brought us abruptly to a realization that we were wasting tremendous quantities of limited resources on the highway, many motorists had come to realize that they had individual ceilings be yond which they could not safely drive. Safely engineers were coming to appreciate that the human dement is perhaps as important if ' not more important than Hue prints and dia grams and rules and regulations. Pacts alone are cold and powerless, tike gasoline in a cylinder without a spark. The spark is the ' emotional dement ` Speed is a deep human impulse tied up with the feeling. Men for centuries have struggled to conquer time and space. Crowding more into each day seems to be one way of adding to the span of life. It is this basic emotional drive that we seek to curb. The virus of speed is in the Mood. We will not reduce the fever by merely applying a poultice of scientific facts and figures. In Emerson's essay on history he says that we always read as superior beings. Even in the greatest recorded moments, we do not have a feeling that we are intruding. All that Shakespeare says of the king, the boy who reads in the corner feds to be true of him self. Here is a possible key to the problem. All men are hero worshipers and tire hero we worship most is ourselves. Applying Em erson we would highlight the personal im portance of each individual, make him fed that what he does really counts for victory. This method has been used in war industries to speed the production of armaments and munitions. It also can he used to slow down the same war worker when he leaves the plant A friend of mine was complaining to me one day in this fashion: "Why should the President be concerned with my tires?" he asked. *Tve got sense enough to leave the car in the garage when the tires are too thin to use, then FU use the North Shore rail road." His reasoning was faulty because he did not know that those who ride the "North Shore" frequently ride it in a vertical position and are glad even to get standing room. Ofv^s, , course, the North Shore railroad is crowded IV;. v,! because we are building at Great Lakes thV^^'! greatest naval training base in the world. We are enlarging the facilities of Fort/Sheridan and it" takes men to build and men must be 'transported to the camps when the building is j available for use. Gvilians must then step aside. This man was feeling so secure that when bis tires were thln.he would place him self an additional burden on the already over- > 108 31st National Safet^ Congress r K. r. burdened public transportation system. For a generation die youth, of Germany has There is another possible approach. He has dcch iPoocinnwecL ror fcouiuoiis id juum of Japan has come.to-Iook upon deatbfor die been complaining about die establishment of a Empire as die snprenie achievement. .This second front "Why doesn't Great Britain' war is also bring fought intbe realm of ideas. send. 1,(100 planes every night in.the week, over Germany?" he asked. I didn'tknow die . The baric idea' that makes. America ^ die American way Worth fitting frif is Shat the answer until one day I read dat.it requires individual is the source of all governmental 1.250.000 gallons of high octane gasoline to power. Tbis itebet^tptntiik andcnmdile send l,000 planes over Germany and bring them lately back to England again.' Now when the citizen knowingly disobeys laws and regulations inertly because no policeman Whttt I see him I shall tell him that if he is handy to apprehend him. reduces his speed to 35 miles an hour, the gasoline he saves for each 1,000 miles of oper One day when i Was on my way to a meet ation will equal about seven gallons. If every ing in Bridgeport, Connecticut early in the motorist would save seven gallons for cadi morning with plbnty Of time; I was irritated 1.000 miles of operation, the total gasoline because a track was in front of me. I looked supply accumulated iA a year would'be suf around the curving road and saw'notiiiflf hi ficient to send a thousand raids each one of my path so X. polled out to pass die trade. diem numbering a thousand planes from At ffist instant my eleven year old son called England into Germany. This, we have been out, "Daddy, ids against the law to ernes a told, would hasten die victorious end of die double white line in thc.State of Connecticut" war. I thanked hun for reminding me..and did not The State of Maryland had die correct idea I think when it ordered new speed limit signs to be painted in the National colors with pass foe trade Someljring more,vahable than life was*m danger there; a boyY beliefthat laws arc made to be observed and not broken. a V for Victory together with die figures How quiddy our people responded to die "35". need for air nudwardens and atodfiaiy po Many of our citizens have, felt dot the buying of' war bonds is their contribution to victory. Perhaps we should tell them that saving in the cost of operating their automo bile at a top of .35 compared to a top of`50 will give them for cadi 1,000 miles of driving enough money to boy a $25.00 War Bond. licemen. Thor were wOfing to ^end long hours in meetingv taking. first aid, learning how to'put but incendiary bombs. If, time public spirited dtizens alone corid be made to realize the foil die automobile takes in man power. and material and die morale it destroys when it Injures' the ather, mqtiier, soa or daughter, if they awHbebroqght to realize " The greatest rids to self-discipline are die that discipline nr an emergency is bnilt associations we make. What is die motorists' reaction when he sees an officer? Does he im tfaroogh ffisdpKne.in the niMinri everyday acts of drivmg and wanting; the power of die mediately think "There is my enqiayee on the . leadership of these people -directed to our job working for me"? When the motorist' .traffic problem would speed its solution. ;' sees a traffic light; does be look upon ft as something that is interfering trith his prog ress 'or a mechanical device to expedite and. sjttooth out the flow of traffic? A marts titi- tensbip can,be .gauged hy where he looks wbenhe sees a speed limitsign. If he glances ~ 7.. he is a good citizenJ if he , lb^fierijn.the rear-view mirrof, the quality' of/his otitenslup is hi question. This is but* One of the many by-prodnets . that develop when, obedience is voluntary as tiie result of hxfividnal. srif-dtsdpBne.: Indus try is coming to* regard die worker.and the problem of.worker safety not as something of die plant alone but of the whole'man. in his. whole life. With automobile accidents airi fatalities constituting 40% of die problem, of safetyinindurtry, Hisnotsurprisingtiiat A strong appeal fo parents and many other adults-is; the help that they can give 19 the yoma it flOtPe tafoogo netting rocni toe proper example/ We rie just bqjnmng'to realize tiiis is so. Now that reduced speedis tied up. witii dm problem ri getting to work and getting home again; new avenaes'to worker motivation are provided. -- dial this war reallybegari a long' time'ago. Thus In voluntary observance, we haven s neces long W1 we d down . jecth orlei ing 1 suits onph India many but} bad I caset woub force and i K--u-O- *CD- f X Wi Street and Highway Traffic Section 109 necessary activity, a possible activity and a During toe six years that I have been Sec* long range valuable result retary of the "NOT OVER 50" CLUB, I What nay we as safety workers expect if we do persuade the vast majority to slow down to 35 miles an hour? What is our ob jective if through fear of public disapproval or legal punishment we reduce our top operat ing spepflto that figure? Certainly die re sults obtained so for this year wken.tfee emphasis was on the 40 miles an hour limit indk9ta4hat many lives may be saved. How many? Suppoee^ the plan bid been in vogue last year. Suppose even forty miles an hour had been our top limit If this had been die have seen this result achieved in several cities and counties through purely voluntary effort hi a number of instances where as small a group as 10% of the total motoring pujbUc voluntarily agreed to bring their speed tinder individual control and reduce it to a top of fifty miles an hour, mounting fatality trends were definitely stopped. Iknow that 340,000 members of toe'Cltib are solidly behind tigs speed reduction movement not only to saVe tires but particularly as it relates to die sav ing of lives and die prevention of Injury. - case at least 15,500 people who are now dead Perhaps we should put our story something would be alive. Some would be b our armed after this fashion. forces, some wbuld.be on the industrial front some would be cheering their fathers Mr. American Motorist yen are smoking mothers |n die homo, helping to ?* and listening to the radio one evening.' The morale. door bell rings. A Boy Scout stands there, "An Army plane is down in the fiddbythe Seven years ago the Lumbermens Mutual ; stood bouse. It needs gas; can.ypn.mare Casualty Company organized, -the "NOT ' five' gallons?* be says, "Sure;" ypif]rigdy. OVER 50" drf> to reveal to die individnal You siphon the gas out ri tfe taMo You -j ! motorists die inherent danger of high speed. carry it to the fiddyom-self,Yomr..neghbors . Individual voluntary pledges were secured. are tome with their quotas and yotraRig&a Club emblems served as reminders. The Club thrill as die. plane takes the air wito . toe magazine made many members safety-mis* power you have supplied. Yortrd in toe war. notaries and die idea began to take bold that You're fighting the enemy. the individual motorist could and should have a part'in increasing highway safety. First You come upon an Army jeep with a Jat hedisdplinedKmselfrsrben through example tire. The men and guns it carries are vitally, ' be h8uncedhodim.to junHaT action. When needed to replace tired men on duty at toC war was yutotencdtoe Club's slogan .was front. Will you loan it your- spare .tire? "Stop Aofcidimts--Speed Deferne." When That's stoat you do when you slow down to war came itchangedto "Stop Accidents-- thirty-five miles an hour.' ',, Speed.Victory.". Our membership, sms urged to otadhre 40 miles-ah'hour'far ite duration. ; Weneed to say to the motorists of America It was 'not' diffictdt'to drop from 50 to 40. "the oil and gas yon -do not use, the- tilts Now they readily conform to die 35ih3ean yon do'-not wear oat--topy are your i im hour lindt They believe strongly in indi mediate contribution tP victory; ' Speed] re vidual speed control a? a meahsto victory strictions are your orders 'of the day. thc ; because toey haviepersooally experienced its rules of your post Itfs your fight When you power.to save Iivesand.prevent accidents. slow down, mfijfary units can speedup." ' it" us.*? s.t.?-, I :' ; . . h.** 'V* .* THU'"vRnSs DAY-v-,, MORNING SESSION *i-" - : -.".r. October 29; 1942 . : . = l\. . ,. ft - mi ::.- . . .. DRIVER TRAINING--JOINT SESSION WITH STREET AKD HIGH- ^WAY^AFFIC sfeWON (MEETINGREPORTED UNDER CHILD . T: .r: 110 31st National Safety Congress ( THURSDAY AFTERNOON SESSION October 29, 1942 GENERAL SESSION Presiding:--Carl J. Rutland, Chairman, Citizens Traffic Commission, Dallas, Texas CHAIRMAN RUTLAND : Ladks and Gentlemen: This meeting this afternoonhas beed reserved (or a very special purpose. The-topics to be discussed are not specific ally assigned, but here is a corpsof men who have had a wide range of experience-in this work They have been speaking and presiding at many of the sessions. I think that they are going to correlate all of the thoughts, boil them down into some of these important war problems that have arisen during the Con gress. Your panel leader is Sidney Williams, and I will turn the meeting over to him. . . . Mr. Sidney J. Williams assumed the Chair ... CHAIRMAN WILLIAMS: The gentle men on dus panel other than myself are se lected because of their superpreeminence in the traffic field. Furthermore, this panel is really unrehearsed and spontaneous. I did not know until last evening that I was to pre side. I did not know until a few minutes ago who was to be on it. I am going to start with the three-star general here, Leslie Sorenson, reelected yes terday as our Vice-President for Public Safety. What, Mr. Sorenson, would you say has been brought out in the sessions that you have presided over or have attendedfins week, of greatest importance from the standpoint of the war traffic problem, and what we can do about it? MR. LESLIE J. SORENSON (Chi cago) : We all recognize (and our summar ies concluded) that file transportation of men and materials is probably one of the most im portant phases of the war effort We also have concluded that there are several filings that should be done. economic, life in peace time. Those existing facilities should beutilized to a hundred per cent efficiency in the war effort I mean by a hundred per cent efficiency that all of the things which we have always done in peace time, education, engineering and en forcement should be applied to every phase of the transportation problem over those roads, those streets and those highways. Then, after we had formulated our plans, approach ing a hundred per cent efficiency, we had to bring in the enforcement to see to the special regulationrthat would not perhaps be tolerated iri peace times--prohibitions of paring, the elimination of certain stop regulations, and the imposition of stop regulations on other traffic not so essential, although it may have been of greater volume. Then we must have a hundred per cent enforcement of those regulations. After we have done those two things, and we find we have a quart of liquid to put into a pint container, we approach the problem of substitute materials and the other things, but we could not apply it for those things. We do not ask for critical materials, do not even ask for secondary critical materials un til we have to the greatest extent tfiffizefour present 'existing facilities. CHAIRMAN WILLIAMS: That is a good start, short and sweet I will call on my second ranking boss here, Mr. Rutland, who was reelected yesterday as chairman of the Street and Highway Traffic Section, and I will ask him fixe same ques tion. You have presided over a number of these meetings and attended a great many. Have you anything to add to Mr. Sorenson's remarks about the nature of our war prob lems and our attack on them? In the first place, previous ponds condoded MR. RUTLAND: Wdl, Sidney, I have that we have certain existing facilities which seen in fins Congress what I flunk is a defi we have used in file normal pursuit of our nite uplift to die safety movement not only in t The men are< the i are; men A the eral neer the up < in p T men is re we i was and A fleet ,-I wi by 1 Log bens legij yeas little that peril Pi in t the; may have the i D fives or'o .. Cl gooc head chai; Nad othe 'M Yes, Les enfo graii men .A, -- -v-ys.- Street and Highway Traffic Section 111 in tiaffic safety but industrial safety aswell. The Federal Government through the Depart ment of Labor and die Bureau of Education areconducting safety training courses through the universities throughout the country. There are flowing into industry agreat many trained men. This will be of great value. " y All through these'meetings we have seised the fact thatthe various agencies of die Fed eral Government, the United States Engi- g vc - neers have - made definite requirements in the contracts that are issued in die setting up of bureaus for provisions for safety, both it in public safety and industrial safety. te That means, as I see it, that die safety i* movement is being gravitated upwards. It W is reaching industrial executives more. I dude * we can truly say that the safety movement was started from the bottom and went up, i- and not from die top down. to al A note of alarm or caution has been re r- flected here and there in these meetings!, and S. ,~I would like.to have tins question answered , by Don Stiver, Chaiman of die State and m Local Police Commission;;."Are you appre y hensive at all of the possibilities of adverse st legislation as these legislatures meet next 5C year, from,the standpoint of maybe doing a little wrecking of some of die uniform laws that we have tried to build up over a long id period of time?" to m }. Perhaps they might think of such action 55, !S- . ot in terms of economy or abolishing some of the acts which are regulatory statutes. They may take die position, "We are not going to *- have any traffic, as automobiles are going off ttr the.highways." Do you dude they might reduce die effec a' tiveness of some of the drivers' licensing laws or'other laws? CHAIRMAN WILLIAMS: This is a as Be s- of iy- good question, directed to Mr. Stiver, who is bead of die State Police' of Indiana, and chairman of two or three committees of die National Safety Council, as well as many other organizations. B*S ib- MR. DON F. STIVER (Indianapolis): -Yes; I am apprehensive of that very thing. Les mentioned about continuing on with these ive sfiily enforcement, engineering and educational pro grams, but already within my own depart ment--the police themselves,' I have sensed the thought that, this problem is going to be solved for us overnight through gasoline ra honing, reduction in traffic, and the thirty-five mile speed limit A very prominent newspaper columnist called me a couple of. weeks ago after this thirty-five mile limit went into effect He was definitely .of the opinion that we should immediately start to take down our numerous stop and go signs, die theory being just the conservation of rubber, the starting and stop ping of cars. Immediately, my. mind wait back to rea lize how hard it was to get so many of those stop and go signals, especially at railroad crosshfgvhnd hop was the effect of tearing that down immediately, together. with die danger, as you pointed out here, of adverse legislation. We have in all these conferences usually aimed our sights at future legislation. I think now we should start a program definitely de fensive, and retain it. I am thinking at the emergency, for example, within our state already: There have been numerous requests to our office to in some way lower die public chauffeurs' license age, which is twenty-one. They are unable to get drivers for school bases. If we go ahead in the next session of die legislature and repeal that statute, then we may have trouble getting it bade on die statute books. I would like to. ^ a program backed .by.... the National Safety Council, for these next legislatures to think in terms'of giving the chief' executive broad.powers to act on these emergencies as they surise; but for die dura tion only, and retain on the statute bodes die tilings we have gained over a period of years. MR. RUTLAND: Do you think people in this -room, as they go bade to their com munities, can do anything constructive now? Would you suggest that they approach their governor, for example, who will address*each legislature at the opening session, to bring out tfagt point; or had they better wpit until the National Council, if it does; communi cates with die governor along those lines? MR. STIVER: It would be helpful to have die governor enlightened. He. may not be fully aware so far as the traffic picture is concerned, but you naturally have to attack fern 112 31st National Safety Congress not only the governor but also the legisla ture. MR. RUTLAND: You do think we have got to fight a defensive degree of legislation. MR. STIVER: Definitely. CHAIRMAN WILLIAMS: The Gover nor of Indiana and every member of its leg islature, not to mention every other state in the country, are aware drat we living in Chi cago do not vote in Indiana, and the Gover nor and die legislators of Indiana do not pay much attention to advice from the outside. Doesn't it come down to this, that die pressure to do or not to do a particular thing in ary state must come from the voters and taxpayers and influential people in that state? Then, of course, if they see fit to call some body in from die National Safety Cbundl or ary other organization to give technical information, to back up die pressure with technical information, then that is where we may come in. You agree with that, Mr. Stiver, don't you? MR. STIVER: Yes, of course. CHAIRMAN WILLIAMS: I understand you oppose the enactment of a thirty-five mile speed limit which would automatically carry through after the war until- it again might be repealed. In place of tiiat yon propose the granting by the legislature to the gover nor of emergency war time powers to set a speed limit or limits for the state. Is that correct? MR. STIVER: That is right. JUDGE HUGH L. SMITH (San Fran cisco) : May I interject here? We haven't a problem that is peculiar to the Middle West or the East or Southeast, but it is general, it is nation-wide. Of necessity there^mmt be^ I general legislation enacted so as toutake 'I of a condition that obtains throughout the entire-country. 7 Certain suggestions as to. war .time rem edies should come from the national capitoL We get our original thirty-five mile limit from.tite office of Mr. Idces; as I take it, or from the' rubber administrator, Mr. Jeffers.' CHAIRMAN WILLIAMS: As suggested by the Baruch Committee, of course. In looking back again, our entire safety program has been .sponsored by die large Indiana- Safety Council, while die National Safety Council has played a large part in sponsoring and assisting in the development of the program. JUDGE SMITH: They are not oniy in terested in keeping the rate of .speed down to thirty-five miles an hour, but they are also interested in die enactment of; other cmergency legislation. Wouldn't it be wise, so that we would have a uniform practice CHAIRMAN WILLIAMS: I must put in a plug for that If we had in every state a state organization in which the officials and the people came together and worked to gether, as they do in the Indiana Traffic Safety Council, the handling of all of these tilings would be very much simpler. That throughout the country, to have the. person* in charge of the National Safety Council, the Street and Highway Section, particularly, take up with the national authorities and see what their desires are, to that we would have general recommendations that would obtain throughout the country?. organized approach In Indiana has been very effective in putting across, things that needed .to he put across. . "I CHAIRMAN WILLIAMS: I think, again, you can answer that in terms of the recent' informal* agreement'-in 'regard ton. I want to pick you up on one other tiling, model law on this speed limit - Don. You said-you have been under pressure to take down some traffic signals Or stop signs. Would you say that due to the shift ing of traffic volumes some stop signs and -maybe even some signals could be taken MR. STIVER: The Office of Defense Transportation Is thinking in terms of work ing through the Council of State Govern ments and of just that type of legislation. down? CHAIRMAN WILLIAMS:. .There.'will MR. STIVER: Certainly-not until after : be prepared very shortly a: model .act .cpp- a careful engineering, survey and study of . ferring emergency powerj;pa the .govgfaitr this situation,.with the men approaching the tosetaspeedlimit^a^ifiKcxssary^pte^dify tiling oh .a wholesale state-wide baas. jit from-time to time -duriiig^tbe -war emer- peopl this < went traffic oott feden gatidi Marii *SX-s-tt- t ^tfetsei :ptaft ialst in a < N: Ott ingfi still v If }i \i 114 31st National Safety Congress . / CHAIRMAN WILLIAMS: You are re ferring to signals, not automobile bead lamps. MR. BOWES: Yes, I am referring to automobile' head lamps. CHAIRMAN WILLIAMS: I have no further answer to that question. Has anyone say that traffic signals must be operated dur ing a black-out or dim-out There is a per manent.device. We found they were unsatis factory for normal traffic during times of die day when die sun's rays blocked. out certain things'so we did die very next simple thing, and during black-outs just the Coi hav like fits naj; oni in the audience? . turned off all our signal tights. The regula tion does not say thty have to be operated. MR. BOWES: I would like to read to you the regulations laid down on die Pacific coast This affects traffic signals. JUDGE SMITH: In San Francisco the authorities have adopted the rule that there shall be no traffic moved during a black-out insi eno ist It : boa: "Traffic Signs and Signals. Illuminated except emergency vehicles, so apparendy this side signs and signals which are authorized or particular gadget, so styled, recommended by and maintained by governmental authority fr the purpose of controlling, or directing street or highway traffic shall be shielded so that no direct rays from the light source are emitted above, the horizontal in respect to lights mounted ten feet or 'more above the ground, or above an angle of more than six degrees above the horizontal in respect' to lights mounted less than ten but more than three the Army authorities, is not intended to be used daring a black-out. Is that correct? CHAIRMAN WILLIAMS: Let os dis tinguish between a black-out and a dim-out. You on the Coast have dun-outs regularly, and you wouldn't suggest turning off all of the traffic signals regularly every night dur ing the normal dim-out, would yon?. C qnc h the witl wha of devi feet above die ground, or above an angle of more than twelve degrees above die horizon tal in respect to lights mounted less than three feet above the ground. Relative varia MR.'SORENSON: It all depends on the extent of those dim-outs. If the operation was continuous at all times from sundown until sunup, then you have another problem, ehh out new oat tions in the upward limit of light are permis sible to compensate for grades." (Coined from Public Proclamation .No. 12, October 10, 1942; Headquarters Western Defense but die specification of the Army, put out by the service command, is intended for die black-out primarily. ther J1 Pac \t Command.) Ndt bring an engineer, I had to engage die services of one-to figure it out,* and I CHAIRMAN WILLIAMS: I do not .want to spend too much time on this point, but Commissioner Bowes, as I understand, you read this as bring effective regularly dur . the his * the' the found out that die Army has approved a cer ing your normal dim-out conditions. : free tain type of device to do this very trick, but shot it costs about $3.50 a unit. Well, when you MR. BOWES: That Is in effect every day. 250 are dealing in thousands of lights, we operate from now on. on a budget basis, CHAIRMAN WILLIAMS: That makes It you VOICE: How about some black paint? .. it a littie tougher. vefai MR. BOWES: That is not permitted. They go into die detail of the thing later on. These are the regulations. This Committee I spoke about' comes back and says this is the device approved by die Army. I submit to you that then; is a problem, for local governments, even state governments, to..think about ' CHAIRMAN WILLIAMS: That is a regulation of the particular Army command area in which your city is'situated? (Assent) MR. SORENSON : It does. JUDGE SMITH: Let us distinguish be tween stationary equipment and equipment on moving vehicles. CHAIRMAN WILLIAMS: We are talking, for the moment; about illuminated signs and signals and street fights. Hu any one in the audience any bright idea on how to dim traffic signals? pie low, The sea. glar ligh ,c amo qpr yott into MR. SORENSON: I might offer one solu .MR} BOWES: We developed something prot tion to that regulation. The regulation put that costs about forty cents. We are trying out by the corps area commanders does not to get it approved; it has been M ufr'.yA if..:.' m Street and Highway Traffic Section 115 iw a s s r die State Committee, now it is up to the Department, we find that drinking driving-- - Corps Commander's office to approve it We at least our arrests for the first nine months v have one of the gadgets here, and I would of die year--jumped sixty-one per cent We n like to have you take a lode at it This just have made over 1,800 arrests as against about , d fits inside of die shield over the traffic sig 1,100 in the comparative period a year ago. A nal, and there are several diffusing shields it on the inside. Under actual test that fits right Undoubtedly, it is attributable to the fact i- inside the signal. (Demonstrating.) Yon get that the workers have more money to-spend i enough light for die pedestrian or the motor and are looking for recreation, resorting to te re it is ist to detchnine whether it Is red or green. It is made out of water-proof, light fiber board and water-proof heavy cardboard in side, and will last about a year or a year and a half. this type of relaxation. I have checked with . the members of my patrol and I thought pos- ^ sibly it was merely a matter of better en forcement They said not It was definitely a step-up in drinking driving. ' K CHAIRMAN WILLIAMS: Now His a question of getting that approved? (Assent) CHAIRMAN WILLIAMS: you think is the answer? What do sIt Is there anything more to be said from the platform or the floor about what to do , MR. RUTLAND: I would like to ask this question. In the sessions of the judges y with die automobile head lamp? -That was and court prosecutors, did'you come to any of r- what I referred to in saying that die State .definite conclusion as to degrees of leniency of Pennsylvania bad developed a masking on. die port of men in the military forces, device which would meet, as I understand, visiting their homes or other places, and get either dim-out or black-out conditions, with ting intoxicated? out waiting for the manufacture of this brand new type of black-out head lamp. Does any ooeLwant to ask or contribute anything fur ther on that? JUDGE SMITH : The matter was dis- ' cussed-on two or dine panels. There were several papers read, and it . was generally agreed that the members of/the armed forces ;= JUDGE SMITH: Some time ago on the Pacific coast when General DeWitt, head of the Western Defense Command, first issued r his order, he stated that moving vehicles in - die dim-rat area when they were approaching die coast line (that is, approaching any point : from which die lights could he teen at sea) should have a strong lamp of not more than 250 candlepower. who were arrested on not only drnnken driv ing charges but cm any traffic violations would be treated just as you would treat tbe > ordinary civilian. If it was a serious charge involving negligent homicide, manslaughter, etc, we are all agreed you should communi cate with die officer having charge of that particular individual, whether that be the per sonnel officer in die Navy or the provost in die Army. If die Amy wants him, they will In certain areas of San Francisco, after make a demand for Ins delivery. If not^ we you reach a certain point where the moving will proceed in the usual way. 1 dunk the vehicles are observable from the sea, die peo majority of judges felt that he should be ple turn off their headlights, both high and treated with no greater severity or no more loW, and they drive with their parking lights. leniency than you would treat die average The street lights are dimmed towards' die private citizen. ' '" sea. They painted the lamps so there is no glare going to the west at all, and all die MR. RUTLAND: If you did not do that, light you get is towards the east' you would not have certainty of punishment; therefore die accidents would increase more, , CHAIRMAN WILLIAMS: Mr. Stiver, perhaps. among other things, you are chairman of qpr Committee on Tests for Intoxication. Can JUDGE.SMITH: The boys in uniform you say something about the problem of die intoxicated driver and/or pedestrian, as a would think they had spe cial license. - prominent item in this war program? CHAIRMAN WILLIAMS : Isn't the war worker violator a bigger problem? MR. STIVER: From our own observa tion, based upon our own records in our own JUDGE SMITH: Our experience on die s B l? 8* 8 116 31st National Safety Congress .Coast lias shown that we do have a great many war workers arrested on speeding and reckless driving charges. We do not find any great increase in drunken driving. Due to the trig wages fiat are being earned by all persons today, die boys go out for a good time a little more ,often, and, as a conse quence, yon have a greater number of ar rests for drunken driving. I would not con fine that only to the men engaged in vital defense work. CHAIRMAN WILLIAMS: I meant not oiily drunken' driving but general violations, speeding, etc, oh die part of die war worker. How do yon deal with those? I have heard a number, erf judges from anumber of different places , state die same policy. I have beard someEigk Army officers say, "Tom; over die military violator to the Army and.we-will deal..with7 them, a-: good deal tougher than you would in your court." . MR. UNCOLN H. UPPWCCntT" (Chi cago) : We have, been hearing abcito .ration ing of gasoline; controlling the tire sittntion, and also die speeder.^ I'wonder ff rationing liquor would brip with this intooricateddrivcr problem. CHAIRMAN WILLIAMS (interrupt ing): I think that- is a sensible thing. JUDGE SMITH: They are brought into court in the usual way. (t has been suggested MR. LIPPINCOTT: I offer it seriously, although, of course, it gets a laugh. . in kkne of our discussions that in certain JUDGE SMITH: 1 was complaining about areas night courts be established, the purpose die one cop of coffee (if I may respond,to bring, of conrse, not to take die man away Mr. lippincott) and I was told that! could from vital worir-tbht he is needed-in. When get up and go to another restaurant"What I go bade to die Pacific Coast I am going about die fellow ratiooed to ooe drink? What to recommend to die presiding"judge of the is going to keep him to one drink? Municipal Court(I happen to be the prerid- . ing judge of die Criminal Division, more or MR.JSORENSON:''We have a certain .less under the control of the presiding judge) capacity `to move'over our street and .high I am going to suggest that we follow the way system. Those capacities at times over system established by Judge Frey, of Cleve tax, sometimes one hundred per. (tent, the land. He gave a very interesting talk this capacities of the rind. If we staggered those . morning cm court procedure, court planning, loads, made, maximum u^tbrimghouttwen- etc. ty-four hours of die day. We could carry those In die city of Cleveland they have night courts twice a week. If a man is arrested up to Friday morning, be has a choice of appearing oq a daytijhe calendar or ain eve ning calendar. If it. occurs up to Friday.he same traffic volumes withoift. auqr excessive, movements. In other woitis,the staggering of hours, the shifting of peak loads;-.leveling themoff, will accomplish equivalent of per haps an equal construction.^ highway ma terials that we know we cannot obtainl goes on die Tuesday evening calendar; after Tuesday, he goes on the Friday evening We build a plant strnctare.. .Tbatriructure . calendar but he is only permitted.come in must pay dividends to its owner, and when it . in an evening"session if he intends to.pteqd is necessary to operatp'on.three shiftsa day guilty.' If , he wants a. trial the. usual way, or twoslufts, thatbuilding .of thatstrutfure ' he wiil take his trial in die daytime, die same is depavknt upon that operation...'In other. as everybody. . words, we do not bmld if. ive' bayea three- . shift operation .to do a shift thatwill. do MR. BOWES; In our dty where .a. war three rinfts.in onc^'we do ft in-three drifts. worker comes in. and is fined and is gnren a I think the sune tiring applies cn onr street sentence, served injail, die judge give? him .and.highway system. 1'-.' : At':i. the opportunity of working in the daytime but M , .. % .spending, an equivalent number of: horns at '.We-have Ibeen awftiUy lax^six!,awfully night in jail, hi other words,.jf_he gets.a generous withthe tiu^y^mdi^in pro- ten-day sentence he spends "twenty nights in jaiL -, - . f in the future aherimbtnyui highway add CHAIRMAN WILLIAMS: That tid _b^:.ccfnri^^ will-utilite to-better .. to solve the.housing problem, no doubt topla traffic tore,; I.tb man,! is. the retard retard Ah orttin new fa be ct* ' ingw thels in&a laigesi of id revatn tbevc ismon .MR Mr. S There who* going andar in poti As X-i that w mobile tbelrij a new In 3 few m tionat in&a coocla for wa 000,001 The Jeffers the ra nation onwht meets i thatth country take or byprii war pa  r::-1 '.:, ' . - v*A*'&'*xy$iipst : '- " " : Street and Highway Traffic Section 117 to flail on the peak; but plan on how moch ; Thethird pointI haveinmindistbivtiiat; tnffic vt can pot tbroughthal capacilystruc- acoonEngto recent stafieswe;havemade of tnrt4v- :. V ^ : current aaadent sfcitist^V m traffic -accidents; this -yw oyer lastyearis Itinck there uooe other dnng Mr. Chair- chiefly among noo-wprkera. We are atill xBU^'tfasst conies ifito the seine cite^w^fi -^Tfcat killing in traffic, currently, almostas many s.me dwDimsDon vjvemDn.oS`,me/DiDKS''USS' workers this year as we did lastyear. icta^_tni^;l.a^v^ naM^^;.t^B^V'we . teUrdits volume and rcduct its yoinoc. " MR. SORENSON: - I /flunk the best an- swefto Mr.Rntiand's question isa statement of Mr. Horner in one of the panelffiscnstions or mwiyor a hundred, or even some cfthese day before yesterday,Jn which he said that new toes thattticeMO workers,should not eighty per cent of flw^passenger. load-of. the be fpowdered-awy'loiipf a-nrntin determin- Nationiscarnedonfrre.whecl^aiidrdien ingwbatcontrol wehave: Itshotddbeon be:said, (he is ^def of theHighway ;Tians- the basisof tbenomber of people itis mor- port Corps .of'the.U:Ar^Jtot if.flat ing;?so where .we -son^imcsfavcireiltfac transportation system . wnr .'.war effiwt largest volume :of.lifadcs. (.tjjfilnpy'itncfly will fidL I tbmkthat answers thequertion. rf vdndet ai aunit) wenoiw hare got to revamp our thinkingand begin to think of r We are going to bave oor traffic problems, the vcdtunes of pebplcthata certain artery and we are going to hayemore pedestrian ex ' ismoving. ^ posures tbanwe have everbad in times past; for: themassing of certain private passenger MB. BUTLANd': I wbidd like to ask car riders on.public vehicles; buses and street Mr. Soremoo tins qaestiott. It ties nto tfatt cars, is going to create pedestrian problems There are''some mayors and city.' managers we never had. We have; got fo bave tfaose who iretakingthe positiootbatweare not controls; and 'while our- traffic'pattern. may ' going tohaveany traffic problem: tomorrow,. : change; I am rare any .budget maker that and are beginning to truu Adr fnkdi both arts traffic control outofhisbodget is cer m poGce work and traffic engineering work.. tainly .doing a very harmful thing to the war As l understand it, we are4nld prettyweH CttOtw that weare goingtohave 20,00Q,000 aato- mbbQes of the29,000,000 passenger can on JUDGE SMITH: *3id I interject a ) tbebigbwajs. Perhapsweare notexpand- querthnhere; on the staggering of hours? Is ing like we were in peace time*. hot we have 'itybar;-idea;that industry gavradly d|0(dd a new'problem..' stagger the hours of its'workers? . In an authoritative report published-i.v MB. SORENSON: That alldepends, few motrths ago by tfae Broolcmgs rnstitit- Judge. You have a certain street- pattern, tioo at Washington; written by Charlie Deer- Yoa know ypor ti^it^ob m transportation in&coutained an analysis )riuch led tb the facilities. You certainly have to rdieve those "odnsion that to keep this coantry going tight ol& mt;^ ' for war pdirpOlKS; OO' flic most 0pld4l00dd mgriimuHty y.f fWfatn Inp^ltfy ftf* foss, vre imBt lceep in rirotdi^do some 2ft- ffistrict;of a mifo sqaare territgry tiirt 00(^000 vrfndes. wmdd havetoshiftthehoara^emidoQin^ tordieve.thepeakload.andtightspotsoa The sixxmd pcnnt is that just recently Mr. tirattranspbrtatioo system. Jeffers redinafod jfoat tbe radio tto tHs coualry is not oriy a You cannot write a blanket ticket in any nation oa wheds but mmt ranain a nation large rity cti wlat tiiose bours may b& You on wheds; The bans for bbtii oftiiose state- caxinot put down a yardstidc of measurement mente is the fod^ wdl known to most cd yon, excQit the tight spots on your transportatmi ' that the mius transportation eqmpment of the system, ,Staggering tiie wrong way would cotaatry, baes andstr^ csu^ canii6t pq^^ make a bad condition worse, tire right ;way I talde over very tkmch of tire kad'nowjcarried worid xiake it better. It has got to be dohe hr private cate and private trudcs for defitete on a'adeutific study, and itiief for those tight war purposes. . Ml Hi 118 31st National Safety Congress JUDGE SMITH:' In and around San Anything tolerated along that line would be Francisco we have a number of ship-building equivalent to sabotage. A. staggered hour plants. Those plants are working around the plan fits in after you have used all road facil clock. They are working on three eight-hour ities and increased their efficiency. shifts, so there is definitely a staggering of work there. JUDGE JOHN L. NIBLACK (Indian CHAIRMAN WILLIAMS: Yes, except that if the day shift.goes on at eight o'clock in die morning, and all the usual shifts' go on at eight in die morning, that does not help any. apolis) : You spoke about cutting down the budgets and . going to have much traffic; Now, if something is not done by die Na tional Safety Congress to freeze the police men into their present role, you will not have anybody to control this traffic. We have, JUDGE SMITH: You have a crowd com ing in, we will say, at half past seven or a quarter of eight, mid you have the others instead of thirty-five trained motorcycle men like we had.a year ago, twenty-one, and the rest have been drafted or have enlisted. going out at eight o'clock, so you do not have two-way traffic at the same time. CHAIRMAN WILLIAMS: I am going: to ask Mr. Stiver to answer that, in terms of MR. SORENSON: But that seven o'clock our Committee discussion yesterday after load coming in may interfere with other loads noon, or the day before. going to other plants, and other important war work, and it congests things so that MR STIVER: It is a problem, and it is both are retarded, where, if one was pushed Nation wide, affecting both city and state a little ahead and one a bit back, you would forces. It Is reaching a point where it Is be lay out the peak over a period of two hours, 'coming very critical. Frankly, the final an- and make your transportation facilities better, swer I do not think any one has, and in dis- ___ _________ ... cussion yesterday In the Committee, it was JUDGE SMITH : That is what you have decided that under the present selective serv- tn nund, I see, in die war industries, m/*hc>, ice law they have gone as far as they can go. shtp-building plants, and.others. Now fhat Whey have issued a memorandum. Na 405 about industry generally, like, for instance, in /ltates that both police and fire are essential lower Market Street where we have sevitgp, ^rvices, but nevertheless, 4t comes down to big industrial organimbons employing a vast each individual board, and when you find a number of office workers? Their work Is so . local board taking a man, immediately, the planned that one department has to be there next man in line, tearing that he will be so that the other can function. How`would drafted, proceeds to enlist Hie result fa that you suggest relaying the work in a plant of die administrator of a police force today fa that sort? gradually seeing the force eroded, and, at MR SORENSON: Your staggering,of hours has got to be done by industry. In other words, if you were to take in tins city, your needle industry! for instance; you would have to have your doth people^ thread people, button people, etc, all shift their hours to meet it You could not have a tailor shop open up if you could not get material. You have got to stagger Industries. the same time; there is additional responsibil ity placed on the police department, both municipalities and state, by the Army, or O.GD. The only thing that our committee yesterday could conclude was that we should attempt to obtain immediately all of the pub licity we coitdd possibly obtain,' tbrough every source, using, again, the channels of the Na-. tional Safety Council, to^enligfiten the local boards of the critical situation!^ In your larger plants where you have a continuous assembly line; there is no reason CHAIRMAN WILLIAMS: And at the why yon could not come an hour later than same time; to impress upon the bead of every yon do and relieve the man at your post police department that he fa not. doing a We have a certain industry here in Chicago patriotic service in letting his men go or which, when it fa operated in strictly war even encouraging them to go, that their patri development tinder the present facilities, it otic job fa to stay on the job and his fa to would take three and a half hours to change beep them, on die job. to the maximum pos a shift of men. That is utterly impossible. sible extent MR have " die sc have i no trs the tr areas other becauj has b< Utah : from there Ogden createi Whi one mt of hoc least o keep c tain he were i workci CHv know, from I the offi says if your t on twe emphai pedice . Just as we mtu are mo our in| cannot as our and do ` conveni MR. small t Hiary j uniforn and nn there a rials in our sm JUD< City): Mr. Sti don of power t states t - Street and Highway Traffic Section 119 MR. JASPER .(Utah): The state police power, and will not have it I have one in have lost many of their better officers. In mind where he has publicly announced that die southern part of die state, where , they Have you thought about die advisability of an have many state troopers, there is practically -alternative proposal of a state law which no traffic on die highways. In otter words, would remain in force until six months after the traffic problem is not so. great In . some cessation of hostilities? We have city ordi areas of die state as it Is in other parts. In nances now in Kansas City that. are so otter parts, around Salt Lake and;Ogden, worded. because of war industries die traffic problem has become very actrte. The state police in Utah have transferred many of their officers from the southern part of the state where CHAIRMAN WILLIAMS: And,which would contain a numerical limit such as thirty-five. there is little traffic to the Salt Lake and Ogden area, where die war industries have created a tremendous problem. JUDGE SMITH. (Kansas City): Yes, and would be automatically repealed six months after cessation of hostilities. While I am up here I would like to make one more comment concerning the staggering CHAIRMAN WILLIAMS: The only ob- of hours for large industries. I know of at jectionto that is that we are not yet sure least one place where they have been able to I that thirty-five will be the limit through :the keep on a skeleton office force during cer war. That thirty-five may have to be raised tain hours of the day when other departments for reasons l have not time to go into. It were fully open, and then most of the office may have to be raised for certain types of workers came at later time. vehicles or possibly for all vehicles. Condi tions may develop which will require thirty- CHAIRMAN WILLIAMS: As you maf five to be lowered, so the. flexible provision know, die OPA is taking typewriters away is very much better. from business offices right now, including the office of the National-Safety'Gnmc3, and May I say with all due respect to the says if you have not enough typists to "use governor, whom you did not name, that if your typewriters on one shift, to use them he does not want that emergency power , on two shifts. Mr. Jasper's remarks simply he is simply wrong, and somebody has got emphasise that we must certainly put our to show him he is wrong, and maybe Mr. police manpower where it is most needed Jeffers or somebody in Washington, plus Just as Mr. Sorenson said at the beginning, the local people^ will show him,he is wrong. we must put our critical materials where they He cannot dodge taking that emergency re are most needed, and use substitutes and use sponsibility, if the public welfare demands it our ingenuity, and not give, up and say we cannot face this. See if we haven't as mud JUDGE NIBLACK: A lot-of state con as our forefathers bad, who used to get along, stitutions do not'..give* the governor war -and do a lot without nearly the facilities and power, and I doubt: seriously if the majority conveniences. of the states would adopt -emergency war- power. MR. WILKER (Forest Park): In our small town west, under OCD we have aux CHAIRMAN WILLIAMS: We haven't iliary police, a little over a . hundred men, time to go into those legal questions, but the uniformed and qualified as first-aid workers point is that tint flexible power is certainly and marksmen. The plans are that where the desirable thing, and you can do a lot of there are losses, the men are put in as spe things in war time, if you want to. cials in die police department, and it helps our small force of twenty-three med MR. BOWES: In Portland, all our city ordinances of a war nature having to do JUDGE EDMUND B. SMITH (Kansas with tiie emergency go into what we call the City): There is one suggestion made here, war code, and will be repealed six months Mr. Stiver, about the national recommenda after the termination of tiie emergency. At tion of the uniform state law delegating that time they will , bring back into effect power to the governor. You may find in some all the existing rules and laws we have on states that die governor does not want that the books. 120 31st National Safety Congress THURSDAY AFTERNOON SESSION . October 29, 1942 JOINT SESSION OF TRAFFIC COURT JUDGES AND PROSECUTORS AND CITY AND STATE POLICE IMPROVING TRAFFIC ENFORCEMENT IN WARTIME Presidmg:--D*. David G. Monkoe, Director of Research, Northwestern University Traffic Institute Evanston, HL Improving Traffic Enforcement In Wartime By JAMES M. GLEASON Chief of Police, Greenwich, Conn. Several problems confront me as a Chief view of the present aims and no appreda-: of Police respecting traffic control, and en tion of the seriousness of the problem. forcement during tiie present crisis. I have written them down in what I consider their order of importance: Fifth--Neglect during practice blackout* of vehicles and bicycles, most, of which are used in civilian defense service of the par First--The most difficult problem seems ticular community. Examples:, high speeds, to be the tremendous drain on die police for bad lights, obstructions in bi^mays. non-traffic duties which has caused a loss of trained personnel in arrests and traffic activ ities, plus the difficulty of replacement Sixth--Fleet operators and specific drivers as a whole take undue advantage of present cnuiaicj cross to toe muter os lugn spccos Second--The question of routing and heavy overloads, ganging of trucks. escorting troop convoy. Army and Navy movements, transportation of explosives. Seventh--"Share the ride" plan and using ancient jalopies for it Third--The necessity of abating some Old established motor vehicle laws daring war Eighth--Tolerant attitude of the Coart tor time. Examples: overweight, motor vehicle wards defense workers and members of the inspection, adequate lighting on vehicles, - armed forces who appear before same for height of vehicle, relaxation of parking 're traffic violations of aU types. strictions in small communities. Ninth--Tremendous concentration of ve Fourth--General public apathy and . devil- hicles in certain locations at certain times may-care attitude toward traffic safety in due to new'war plants and industries. Improving Traffic Enforcement By JUDGE GEORGE J..GRELLNER City Court Two, St Louis, Mo. - We have approximately 500 cases daily in as to what I deem necessary to solve the our two courts. About 70 per. cent of tins, problem before us today. number are traffic cases, so with the experi ence we have had in the past year and a half According to statistical, pedestrians lave I am going to endeavor to give you my idea been very much to blame for maty of the traffic jury; data ntakii die s cross of til Ala signal >$** dti an o red li mood lives) pored of 19only < throm matte order sage enforc We dtutry round for na are on time i spectic Union that a these : murde ` doing a mot classic tmssioi acridei Ag would "teetV who x carries fender, while license contini no drr fine h again mobile 8 ? s*8? ....... '`'T v'-'1'-" :' ' ' ......... -rV.: ";. ^J;1 Street and Highway Traffic-Section traffic accidents which have resulted in in* drive an automobile be issued/fo. jury and death, and it.is myrecommendation unless he or she shall pass adriving test that a pedestrian law. be passed in every state and a physical examination. - making it an offense for pedestrians to cross die streets anywhere, bat at the designated cross walks and also not to permit crossing of die streets "cat-a^comer ": Hus examinationshoulddetermine whether the applicant has animpairment which would affect Ids drivmg. We toow: diat there are diotisands ^ people irim tdi^ drive auto Also, at all intersections where automatic mobiles who have bad. eyesights Odiers who signals are located, pedestrians should not aie subject to epileptic fits; many who have be/jjdfowed to cross against the signal. Some other, physical impairments which tend to dtiW-ncrw enforce this law; however, a make them unsafe and dangerous drivers. So grtatmimber do not have a law malting it if we would see toit that our`driver's license an oiftase 'to cross die street against the laws were such as to correct these evils we red light ln St. Louis for die first right would be doing die piddle a great deed. months of this year 72 pedestrians lost their lives by reason of thdr carelessness as com pared with 38 during die first right months . tynirtmiMiiwf xs it r- of 1941. This situation in St. Loos is not only our trouble, but I believe is die trouble throughout the United States and this is a matter that should be rectified at once in- order to save lives by the adoption and pas sage of a uniform pedestrian law, and to enforce it stricdy. . A bad practice exists in many of our rides which aim existed at one time in St Louis, that of prondscuonsty permittingtraffic cases to be continued hum time to time. Today in St Louis in order for one to get a con tinuance in a traffic case it must be proven that the defendant is under die care of a * Inspection and Licensing doctor or can show good erase for not bring., in court Then the case Is continued for a We all know that since die automobile in dustry has been frozen no new cars are bring manufactured, so it now becomes' necessary short time and when it appears on the docket for a second setting it must then be tried without any further continuances. for os to. be more careful with the cats that are on the streets and it appears that it is. high time that a compulsory motor vehicle in spection law be passed in every state of our Union, as there are many machines. today that are unfit and unsafe. The drivers of these machines, in my opinion, are potential By riindnating all these continuances we not only do away with the crowded dockets but we also relieve the.police officers from spending most of their tune in court when they could be out on the street doing their <!tny v murderers, and we who sit idly by and are Another reason .why continuances are bad doing nothing to (whig about die passing of is that you may have; for examphva defend a motor vehicle inspection law can wdl be ant appear before yon with a serious charge flawifiwt as ridmg an|t abetting m die com- against him of which he is guilty. To allow misrion of all careless driving resulting in that man to continue his case from time to accidents.' time is only permitting bun to go out and A gTeat hrip today would be if each state would have , a driver's license law with "teeth" so. that when, you have a- person who is convicted , of . wring negligently or. carelessly, or ooe who is an habitual of*; fender, or who has been convicted of driving while intoxicated, then this person's driver's license should be suspended or. revoked ac drive while his case is pending, and in many instances he will probably be the cause of someone else's beinginjured or killed while his case is pending. Whereas, if his case is brought to trial quickly without any con tinuances, the Judge, can .take the proper steps to revoke tint man's' driver's license; thereby avoiding further trouble. be cording, to die offense^ As it is now where There is:a needin cities where traffic is no driver's license law is in effort, after die heavy to establish one-way streets. On these fine has:'been paid die party is permitted one-way streets there should-be mi parking ve again to go about driving his or her auto- permitted as. tins tends to slow up traffic. be mobile. I also advocate that no license to Another way to dmuriate a lot of tmneces- tTCj 122 31st National Safety Congress sary accidents is to do away with angle parking and only pemritrparallel parking, Then again, I believe that pavement markings as to speed, school stops, boulevard stops, etc, is a good way to warn motorists as well as pedestrians, of danger and the more pavement markings that we have the safer it will be for all of us. A Prosecutors Views on Law Enforcement By ALLEN WILSON Asst City Attorney, Lincoln, Nebr. Although the actual mechanics of prosecu tion work may not be materially affected, the prosecutor of today is faced with a greater responsibility to the end of law en forcement; and more particularly, to the end of traffic safety. The prosecutor has a very definite place and part in the traffic safety program. Today, we must be more vigilant than ever in our efforts for better enforce ment and control of traffic. To me the term `'prosecutor" is misleading as applied to the position. To prosecute, im plies a one-sided endeavor. Yet, the prose cutor's true purpose and endeavor is not merely to get a conviction. He should be as much interested in protecting die accused as he is in prosecuting die case against him. In the final analysis, the proper end to be achieved in a traffic court is cooperation and understanding, and certainly. this can never be achieved by bull-dozing or ,brow-beating die defendant, or taking advantage .of his nervousness or inexperience. In the absence of counsel for the defendant, which is gen erally the situation, if the prosecution sees that both sides of the case are fairly pre sented and that neither side takes an unfair advantage, he is properly fulfilling his duty. In my opinion, being on "constant guard" to protect rights and to see that the.defendant gets a fair and impartial trial is a big step to the end of traffic enforcement, and safety gains thereby. When it becomes gen-, erally known to the driving public that die traffic violator in court has protected rights and gets a fair and impartial trial, a long stride will be taken toward respect for and enforcement of traffic laws. We are hesitant to admit it, but there does exist a feeling by many violators and the public that you have at least two strikes against you before you enter the courtroom. Many of you have heard these expressions in open court, such as "There is no use in contradicting the policeman" or "I might as well plead.guilty." A good answer to such a statement is that die officer's word is no better than that of a citizen; still, it is just as good. When it is posable to do so,, the arresting officer should have present any laywitnesses to corroborate his testimony. Then you have heard the defendant when arraigned for a plea say, "Oh, Fit plead guilty," and then in almost the same breath say, "I really wasn't speeding," or other utterances to the effect of innocence. Such a plea cannot be taken, and die violator's rights should be dearly pointed out to him. In my opinion, if the defendant continues to enter such a plea of guilt together with protestations of innocence; as many do, a not guilty plea should be entered for him and trial had. If we, as prosecutors; can help in any way to create an attitude and feeling of greater respect for our traffic courts we will see greater results in our efforts toward traffic safefy. As a lawyer, I have always had the feeling that die public shotdd have a sense of greater respect for all courts, regardless of their jurisdiction. . And, in his regard, if we can do anything to establish a greater feeling of respect and dignity for our traffic courts, dividends in traffic enforcement and safety will result from our efforts. While in Colorado last month, I had the pleasure of attending a traffic session in the City Court of Denver. I was very much im pressed with tiie manner in which the . cases were presented and disposed of in that court. No doubt die traffic violator on departing from this courtroom has a great respect for this Court and for the traffic ordinances .of the city. We have an Air Base close to Lincoln with something over 10,000 men, the exact number being unknown to me, and no doubt, a military secret The officials of the Base have whid treats soldie the e fine; ! guilty such same Prove consic in Lit appar It t tive s how dealin, gram. ing d variou throng forcen educal vehicle found operat As . these ! crease ports Presid out ou within with u ing so dded Furl at the trnusua traffic decide* and c* convici in.`.'-'"ytfpvV':*-'';- Street and Highway Traffic Section 123 have entered into an arrangement with us which has worked out very nicely. The. treatment and penalties are the same for the soldier as the civilian with one exception.` In the event the soldier is not able to pay his fine, his plea and fine are set aside, a not guilty idea entered, with continuance until such time as he can pay the fine. At the same time he is placed In the custody of the Provost Marshal. From my observations, considering the number of soldiers driving in Lincoln, we have very few violators and apparently we are getting proper observance for our traffic ordinances. The vital importance of enforcement, and c"~ particularly today, is emphasized by traffic surveys and reports from all parts of the country, which still indicate that traffic vio lators are involved in at least half of our . traffic accidents. We must get the full co operation of the public for traffic regulation and safety in driving. A long step toward that goal is through the proper function of the prosecutor and court. Improving Traffic Enforcement in Wartime By L. G. TRIPLETT Supervisor, Operator's License Section, Dept. of Revenue, Frankfort, Ky. w It has been my observation that an effec to discourage such reporting, therefore, if tive safety program depends largely upon we officials who are primarily interested in how successfully we educate all agencies traffic safety will apply ourselves to educate dealing with the various phases of tie pro- the law enforcement agencies in traffic safety gram..We have spent considerable time dur and encourage tie reporting of motor ve ing the last four years working with tie hicle violations. Those of us in tie drivers' various peace officers, prosecutors and courts licensing divisions may be able to retain throughout Kentucky encouraging the en driver's records on motor vehicle violators forcement o -bur motor vehicle laws and which we otherwise would not be able to da educating these 'offidals in reporting motor vehicle violations to our department I have found most-of these agencies willing to co operate in our program. The centralized maintenance of . driving records can be very effective in removing tie reckless and incompetent driver from our highways. It has beat the polity of this As a result of our continued effort along department to record each motor vehicle these lines we have shown a tremendous in violation against tie individual involved upon crease in the number of convictions and re receipt of a report of snch violation. Minor ports received in our department With tie violations result in letters being written to President and the various governors through the violator warning him that further viola out our country appealing to citizens to drive tions will endanger his driving, privilege. within a thirty-five mile an hour limit and More serious violations result in tie suspen with most law enforcement agencies cooperat sion or revocation of tie violator's.privilege ing with this program, we should show a de to drive. We fed this procedure effective rided improvement in traffic enforcement not only from a psychological viewpoint, but Further to emphasize tie statement made at tie outset of this letter that we have an unusual opportunity to encourage more rigid the driver is: informed of the department's action and tins tends to encourage the viola tor to drive more carefufly. traffic enforcement, there will no doubt be a II we place more stress on encouraging tie deckled decrease in motor vehicle violations reporting of motor vehicle violations we can and convictions and tie reporting of such accomplish much in reducing traffic accidents convictions will not be of such a volume as and improving traffic enforcement