Document GmapOBY83nK6gK3L0aqjy9zo7

TRANSACTIONS ' - 32nd NATIONAL SAFETY CONGRESS Volume II ) \ 1 3 Street end Highway Traffic, Commercial Vehicle, Transit, Child Education, Home and Farm Safety Sessions CHICAGO October 5*7.1943 ' i i i * National Safety Council, Inc. 20 North Wacker Drive, Chicago Copyright 1943, National Safety Council, toe. r " - Printed to UjSJL PLAINTIFFS EXHIBIT PLAINTIFF'S EXHIBIT o/`/5$j/o Volume I is distributed to all members of the Council, Volume II to members particularly interested ip the sessions it contains. The Transactions are a record of the proceedings of the Congress, condensed and edited here for reference purposes. They are therefore an abridged version of the papers and discussions. `The original manu scripts, some of -winch have drawings and darts not reproduced.here, are available in the files of the National Safety Council. The National Safety Council, at its Congresses, seeks to eliminate from discussion matters which are not pertinent to the aims of the Con w gress, or which are contrary to the Council's policies. However, it can not accept responsibility for views expressed, either in the papers pre So judg< .M sented or in tins record of them. with Extra copies of the Transactions may be obtained at the following rates: Volume I, one to ten copies at $2.00 each; 11 or more copies at $1.75 each. Volume II, additional copies, 75 cents each. mush ant t troub work THE NATIONAL SAFETY COUNCIL Inc. 20 N. Wacker Drive, Chicago, HL / i u ' * o Using the Transactions . k/ The two volumes of Transactions pub* Arousing interest in safety in the schools fished each year are a source of supply for and in homes and farms becomes easier after [ safety ideas, for safety methods, and for reading the experiences of the speakers at safety material. Used effectively, die Trans the Child Education, Farm Safety and Home actions volumes can become the safety man's Safety sessions. Several meetings concern "Five-Foot Shelf'--an encyclopedia of estab curriculum problems; others farm machinery lished methods as well as of the most suc hazards; and still others household equip cessful experiment. ment, civilian defense, and off-the-job acci The safety engineer, the progressive indus dents. l" trialist, and students of safety will find these Speech-making materials are abundant for volumes valuable for reference. They con tain the best knowledge and the long experi- the traffic engineer or the school or city offi-. ciat who is scheduled to talk on accident ence^of-the men and women who appeared prevention, either in his own community or fore the 32nd Annual Safety Congress. at conventions of his own profession. The For easy use the material has been ar ranged and identified; first, by die major headings of the Table of Contents on page 2, and by the comprehensive Index at the Transactions contain excellent, examples of safety talks as well as authorities and quota tions for local press releases, poster and bul letin boards. I* back of the book. In the body of the book each group of meetings is printed in the same order in which they appeared in the daily . time, schedule of the original program. Safety promotion plans always profit by new and novel ideas. Speakers at the Con gresses offer rich source material for the pro motion of safety on highways, in homes and The detailed alphabetical Index quickly in schools. locates specific safety material. It lists items in three ways: (a) by subjects dis Outstanding safety leaders are powerful in cussed, i. e., cyclists, household appliances, fluences in the promotion of the national military convoys, traffic "dim outs"; (b) by safety movement As officers or members; of speakers, in the,case of formal papers. Speak the Council's sections or as public, officials ers' names are .printed in italics; (c) by the they can be helpfuTin organizing individual late division or group, as Child Safety, Home safety programs. `on- Safety, Farm Safety. National Safety Council services and the an- Solve accident problems. Traffic officers, national safety program will be better un ?re- judges, highway construction men are faced derstood through frequent use of the Trans with unprecedented problems caused tty the actions. A survey of die material contained ring i at - mushrooming of war plants and the attend- in this volume will give a better comprehen ' ant traffic congestion. Not die least of their sion of die growing power of the safety move troubles Is the control and discipline, of war ment and a better understanding of the ways worker-drivers and drivers in service uniform. in which this power is made effective. jI ,- i ..X |Vj m The Council's I jIj* f > *. > ti- s The National Safety Council, a non-profit; taught how to do the job in the safe way. cooperative association, aims at the elimina Therefore people must be taught how to live tion of accidents. Ittherefore advocates die safely. This teaching and training is a joint following program of safety activities: responsibility of industry, of schools and col Creating interest in safety People try to prevent accidents only when they are con* leges, of governmental groups, of parents in the home, and of safety organizations. vinced that (a) accidents threaten personal happiness, industrial efficiency and economic security; (b) accidents have definite, ascer*. tainable causes; (c) accidents can be pre vented. Supervision for safety. We need good fore men in industry, alert patrol boys in our schools, diligent police officers on our streets, thoughtful parents in our bomes.Supervi- sion can greatly minimize the of Finding accident causes. Accident 'causes arc not the same in any two plants, in any accident, even when people; attemptx ingiy to take risks. two dries, in any two schools. They are^not the same from one time to another. Ev organization must study the causes of acddents in its own group so that prevention efforts will be effectively directed. ' egislatipn fops&fety. Sound, legislation on traffic; mrmdHstrial matters, ho public transportation, on home construction and maintenance; and on many! aspects of per sonal conduct provides'a standard to which Maintaining interest in safety. It is the a large majority .of people are willing to task of (he newspaper, the radio, the maga conform. It also provides a basis for requir zine, the school, the public speaker and every ing the conformity of a small minority. other educational .inifaenpe-to keep remind ing the worker, the driver, the pedestrian, the housewife and the school child that free dom from accidents is, purchased by. self-disdplineplus active cooperation in the na tional program of accident-prevention. Safety organisation. Every organization, regardless of its principal purposes, can and ' should find some place tor safety in its program of activities. Accident prevention should have a large place in the activities of trade associations, chambers of commerce;. Engineering improvement. Many accidents service dubs, welfare organizations, educai- occur because equipment is faulty; The punch tional associations and local and state govern, press Is unguarded, the automobile brakes ments. !* are worn, the stairway is crudely built, the stop sign is obscured. We'tonst jurist that the things we buy--whether* stepladder or a stop sign, a bandsaw or a blast faraacet-- be safe things. And we most be willing if necessary to pay a higher price, because of tills built-in safety factor, realizing that it is true economy to do so. Leadership. This program of activities can . be effective only with toe interest and coop eration of everyone--men, [women and chil dren. The National Safetyj Cotmdl provides national leadership through winch toe safety efforts of all our people may be coordinated and made effective; The Council offers full- ' est cooperation to all individuals, industries, Training for Safety. Many accidents occur organizations, communities and agencies because the person involved never has been whose purposes are in accord with its own. Get Fir C Set i Th Fox / Chi S Chi 1 Me Ex- Sec a Street and Highway Section a y. VC at .1in eiir * iDf V- >n ic Ml rdt to r- T. n, id r ts n of *, ti- in . P1- E5 13T id 1-' % es n. % Officers 1942-1943 General. Chairman--Gaul. J. Rutland? Chairman, Citizens Traffic Commission, 518 Interurban Bidg., Dallas, Texas. . * Fint. Vice-Chairman--Vi. Graham Cols, Director of Safety, Metropolitan Life Insurance Company, 1`Madison Ave.,New York, N. Y. . .j Second Vict-Choirman--Don F. Stiver, Superintendent, .Indiana State Police, 125 State HousesIndianapolis, Indiana. Third Vice-Chairman--'Waltol. B. Martin, Secretary, Peoria Association of Commerce Safety Cotmcd, Alliance Life Bldg^ Peoria, 111. Fourth Vke-Chaimon--EASi. F. Campbell, Executive Director, State Highway' Traffic Advisory Committee, Insurance Bldg, Olympia, 'Washington. Chatman> Committee on Accident Records--Wilbur S. Smith, Bureau of Street Traflic Research, YMe University, New Haven, Conn. , Chairman, Aniwalpngress Program Committee--W. IC^Ingram, Chief of Police, 222 N. MainSt, SouthBend, Indiana. ' Members at.large--. .... / Junes Job Brown Cummings, Municipal Court, 815' Stahlman Building, Nashville, Tennessee, - . . Paul F. Hrix, Executive Secretary, State Highway Traffic Advisory Committee? State Capitol, Des Moines, Iowa. Inspector Joseph B. Kennedy, Deputy Cormnissioner of Traffic, Oeveland Police De. parthten^ Cleveland, Ohio. . D. Grant Micku? City Traffic Engineer,1429 .Wayne St, Detroit; .Michigan. . Ralph W1 Robinson, Secretary-Manager, Greater Los Angeles Safety CbontiL Rm. 222,530 W. 6th St, Los Angeles, California. Ex-Officio, Former General Chairmen-- Roger L. Morrison, Professor of Highway Engineering: and Highway-.Transport, University of Michigan, Ami Arbor, Michigan. Judge Harry H. Power, Chief Justice? Evanston Municipal Court, City Hall, Evanston, HL Secretary--YIabxisx D. Booth, Traffic Engineer, National Safety' Council, Ina, Rm.%0, 20 N. Wadcer Drive; Chicago IU. 1 i 1 *i: i iv 2 32nd National Safety Congress, 1943 .. tv 'i i I ! ' 4L ' Officers 1943-1944t General Chairman--W. Graham Cole, MetropolitanJLife Insurance Company, 1 Madison Ave., New York 10, N. Y. First Vice-Chairman--Don F. Stiver, Supt. Ind. State Police, Indiana State House, In dianapolis 4, Ind. Second Vice-Chairman--D. Grant Mickle, Automotive Safety Foundation, 726 Jackson PL, Washington 6, D. C Third Vice-Chairman--Walter B. Martin, Safety Council, Peoria Assn, of Commerce. Peoria, HI. Chairman, Committee on Accident .Records--William . M. Greene; Connecticut Motor Vehicle Dept., State Office Bldg., Hartford, Conn. Chairman, Annual Congress Program Committee--Burton W. Marsh, American Automo bile Assn., Pennsylvania Ave. at I7th St, Washington 6, D. C. Members-At-Largc-- Judge E. W. Frost, Municipal Courts Bldg., Kansas City 6, Mo. Joseph B. Kennedy, Cleveland Police Dept, 2001 Payne Ave, Cleveland Ohio. Theo. M. Matson, 311 Strathcona Hall, New Haven 11, Conn. James A. Pryde, P. O. Box 1165, Olympia, Wash. Ralph W. Robinson, Greater Los Angeles Safety Council, 530 W. 6th St, Los Angeles, Calif. Fred M. Rosseland, c/o -Newark Safety Council, 24 Branford PL, Newark; N. J. Ex-Officio, Former General Chairmen-- Judge Harry H. Porter, Chief Justice, Evanston Municipal Court, Evanston, 111. Carl J. Rutland, Chairman Citizens Traffic Commission, 518 Interurban Bldg, Dallas. Texas. Secretary--Harvey D. Booth, Traffic Engineer, National Safety Council, Chicago 6, 111. tAs elected by the delegates 'in Congress session. tht of "tc 1 col sui cei .3 Igs are Inf the wa are tioi .1 to wa: opt wa: bei --J* rec tioi f nat tha the hoc froi mui add und gait a.S sent I and the den that tow for. Street and Highivay Traffic Section 3 TUESDAY AFTERNOON SESSION October 5/1943 1 General Session Presiding: Cun. J.Rot&akd, Chairman, Citizens Traffic Commission, Dallas, Tex. Tbe Challenge of Traffic Accidents in Wartime By HED H. DEARBORN Executive Vice-President, National Safety Council, Chicago The war has done a strange thing to accidents when wartime driving restraints the word "total." We hear of "total" War, are lifted. The total job. of winning this of "total" destruction, of "total" effort, of war requires recognition of this dual as "total" production. pect of the accident problem--and the fur For a word that used to be so Bat and ther fact that something can be done colorless, so much a matter only of school about it. sums and account books, the word "total" The meeting' of. the challenge of, this certainly has acquired glamour. two-fold problem is really as simple as . It is a glamour we cannot afford to ignore, for whether we like.it or not, we are part of tbat sum, and our efforts do influence the ultimate result; not only for tbe fact that .A is followed -by B. If a man or woman is- presented with the facts concerning the traffic accident situ ation and is sold on the idea that there the immediate objective of winning the is a certain process that must .be followed war, but for the one we more and more in order to reduce the number of such are coming to think about--the construe* accidents, it stands to reason that another1 tion of a better postwar world. convert will be added to the long list of . It requires no flight of the imagination those who are striving scientifically to to understand that traffic accidents in prevent traffic accidents. wartime have a direct and serious effect upon the successful prosecution of the The Two-Fold ChaHea^ war. It likewise is true that something is The first part of the two-fold challenge being done about reducing these accidents consists of traffic accidents in wartime. --just as something must be done to cor The year that has just passed has, rect any recognizable, situation or condi brought a great transition in the attention tion which hinders an early victory. to traffic safety. At the Congress a year: From the peak of 40,000 deaths/ih the ago we were directing all of our atten nation in 1941, traffic deaths fell.'to less tion to the place of traffic safety in main-: than 29,000'in 1942. At the present rate, taining essential transportation. and con the total this year will be in the neighbor serving manpower and material for win hood .of 24,000, or a reduction of 40% ning the war. That problem is still with from 1941. Lest you be heartened too ns, as important, as- challenging as ever. much by. this sizeable reduction, let me Traffic accidents killed 16,500 workers add tbat traffic volumes are about 32% and injured 600,000 more during 1942. under, those two' years ago. So' our net Forty-two million man days were lost-- gain for safety is slight indeed--but it is a gain. Onr statisticians figure it repre sents a 5% improvement. . man days tbat might have, been spent in building airplane motors, landing barges, . or gun sights. Or perhaps they were man I have but to remind you that more days that would.have been`spent growing and more people must be brought into food, always a weapon when nations wage the job of meeting this problem ofacci- War.. The cost of traffic accidents in 1942, dents in wartime--and it is to be hoped has been estimated at $1,600,000,000. That that any measurable accomplishments would be a sizeable contribution itself to' toward that end now can and will be used tiie nation's war effort could it have bger for. insuring even better control of traffic invested in .war bonds. 32nd National Safety Congress, 1943 Until the war is won we must continue .efforts and educational programs were im our attention to transportation of em mediately. returned to: theirl941 levels ployees and material, to adaptation.-of but that we kept onr present 5%gaihfbr traffic control to wartime demands, .to safety.. Without .a doubt the' new prob preventive maintenance for conserving lems presented at the end of the War will the steadily diminishing supply of ve tend to change that -5% gain into .a. loss hicles, and to. other measures .that are N --unless we do. something : about it, and. specifically adapted to war conditions. < <loifc now. f :l Traffic Safety in a Post-War World ' ..-We dare not. wait until these changed problems are upon us before we attempt ^long with the United Nations' change .. to identity them and do something about from defensive to offensive warfare has /them. Rather, we must consult the accu- come rapidly increasing attention to what > mulated experience ofjthe past, watch care we shall face in traffic safety after '.the fully for all preseny indications of prob war. able post-war conditions, and build up pur Post-war planning programs of many safety, defense agabst possible. points of kinds are claiming the attention of many . attack against our gains in, traffic.safety. organizations and many interests. None Most importantvi we most get ready to of these, however, offers greater' possi take the offtoui^W that not only unQ bility than that of planning for post-war present gains be held, but infinitely traffic safety. The. wartime challenge greater, progress be made in .bringing carries a direct challenge to get ready to safety to our people |n their- everyday combat the possibility of a sudden up lives. . [ surge of accidents as wartime driving re The initiative that the Street and High straints and restrictions are removed. way Traffic Section has taken in prepar- Traffic patterns will change greatly ing to meet the post-war'traffic accident when industry shifts from wartime to problem is commendable. It shows again peacetime production,, and many em the alertness .of the.leaders in . the field ployees' retrace their- steps back . home of traffic safety to changing traffic. con from war production centers. <*. ditions. C_on-ctlusion - Driving restraints relaxed when war de mands are again converted to peace time requirements offer a possibility of serious accident .losses as free rein is given the millions of drivers now "chafing at- the 'bit" If we would have a "safety minded" public attitude, then, much must be dopeabout it now. Millions of servicemen returning to civil ' . This Congress carries a challenge vastly different from any preceding Congress. . The job we are In is for from bring come pleted. We must continue to apply special wartime adaptations of the well-known three "E's" to the unfinished job of win- "ning the world's greateststraggle. The hearer* we come to final victory, - the nearer the time approaches for the ' life will cause many changes in our daily habits. There may be a serious relaxation : great transition that-mm! take place in applying the same' three fEV to another in the public interest in traffic safety which has so laboriously been developed. vastly changed traffic accident problem; We will need.then new Weapons in addi These and other changes in the indus tion. to onr old ones, for attacking' the trial, commercial, occupational and finan post-war traffic accident jprobljms. cial structure are likely to bring serious The. job of this Congress ia to 'renew - problems in traffic safety if they are not the. inspiration and information:that wfll foreseen and proper remedies applied. continue. onr present struggle through to To rephrase a comparison I made completion and also, will prepare us for earlier, if 1941 traffic 'volumes were sud the struggle after the war to conserve life denly returned to the streets and high-. and avoid suffering the; loss from acci ways of this country, the annual accident dents on our streets andj highways. Only toll would account for nearly 38,000 by tins means can the benefits of peace, deaths. This of 'course assumes that our which shall have been , so dearly bought, - 1941 enforcement manpower, engineering be fully realized. Street arid Highway Traffic Section The Pedestrian Accident Problem and Its Solution i\-[:By INSPECTOREDWAHD J. FLANAGAN . ' " I ' Cleveland Police Department, CleveIxnd,Ohk> In the. latter part of 1937,. the Greater ; ordinance. We then intensified1 the educa Cleveland Safety Council. took an'active tional program by making more use of the interest in the! pedestrian accident situa . radio and^newspapers-^Stunts of all kinds tin'and, in cooperation with the police . were employed that provoked newspaper department^ embarked on an. accident publicity.' '.j'' '-.l prevention program. The traffic division was revamped to coordinate the program.. A traffic engineer was employed and as . signed to the traffic division. Surveys yete .started .and an engineering program was pn :.its way. We had no educational ' A policeman permitted, himself to be wrapped in bandages and disguised with dark glasses.. Bearing the sign T. Was A Jaywalker" he iwas paraded slowly through town in a -wheelchair assisted jby brother officers who handed out warning program - other than a splendid safety cards as they moved along the-avenue. educational program which had been in - This warning. card served notice that effect, a few years before in the ptiblic after July 15th arrest would follow any schools. There was. hp educational pro-.granr-for adults. Consequently, the- Bu jaywalking practices.. The warning card carried the simplified phraseolbg^ of (the reau'of. Public Relations was fonned within the police department Ordinance. Police' officers boarded street cars- and buses with a megophone ire- . T^e 'purpose of this Bureau was .to questing passengers to refrain from jay create better public, relations between . the walking. The police sound , car cruised , .public and the police. This bureau con the . streets. Signs and placards appeared sisted of a captain in charge, a lieutenant, all. over town urging, people to walk with a sergeant and twelve patrolmen. Radio carei Crosswalks, ware repainted and .new: prpgrams and- newspaper artides eman-. ones created. wherever the distance be atedfrom the bureau, explaining the func tween intersections Was great. Stanchions tions of the police department and point of the same-type as those Used to mirk ing out how the average citizen could safety zones-were erected to mark cross cooperate. The. Public Relations Bureau walks, making themeasily.: visible ; to accepted as their first task, one which is- motorists. Motorists .were warned through still their most important--a traffic safety - the same publicity, that failure to yield educational program for adults. the right of way to pedestrians lawfully . .*. - in the Crosswalk, would result in' airiest. PrpvidnigEbfocceinent On the' morning oif July 15th, we used ' Traffic ; authorities and! civic minded a picked group of!officers who were. con citizens were divided on. the advisability sidered to be the diplomats of the fotce,- of instituting an ordinance providing en and placed, them`.at all intersections in forcement oi>''pedestrian's. We debated the dowhtown and main outlying business that question fo^ a year: or. mose;. Mean- centers. They! gave-pedestrian, snmmiohs while we . carried on. a' pedestrian edu to all jaywalkers. The summons notified cational . campaign which brought some them to go to the;:Traffic Division and results but we ladced enforcement with pay a fine of one dollar or rgo to opart those people : who remained obstinate., and face trial- Crowds'gathered and found High poUcepffidals argued that the en great! amusement Watching ; others ! get forcement.hfu pedestrian ordinance would tickets.-.. ;\ be difficult and make. .the- police very We continued this procedurefor a week . unpopular jand. that it wbuld defeat our pubfic "relations program. and then left'the job to regular routine police, business: Some grumbling was; ex . The. proponents of'pedestrian enforce pected by police officials, but surprisingly ment finally won out aud'it was decided the -public reaction was unanimously in to . request: the city, council to pass the favor;of :the campaign; which has since t>! Sir' 1- 6 32nd National Safety Congress,1943 become a permanent phase of law enforce* ards are important factors; Unwillingness ment work. No serious complaints have to readjust walking practices to present' been registered to date. traffic conditions is another serious factor. We then made house to house personal delivery by police officers, of a pamphlet entitled "Are Your Feet Killing You?" Other Causes Unsound walking practices are the pre Results were gratifying and we found that dominant factor in pedestrian accidents.- where 80 per cent of our traffic accidents We find that a large number of our acci in 1940 were pedestrians, it was reduced dents occur when people cross against the to 71 per, cent in 1942 despite a general- signal. They are victims of the minute increase id all accidents. The year' 1942 saving phobia which urges them to cross however, brought some 80,000 additional against the lights, in the middle of the war workers, to the city and we find that block and dash from behind parked cars, they have met with more than their share that's pedestridde. i of accidents. The selective educational program now includes these newcomers to our city. I have briefly discussed the pedestrian situ ation in so far as Cleveland is concerned but there are basic fundamentals to deal with-when attempting a solution of the pedestrian accident problem. So we must OV- seek the reason for the pedestrian acci dent problem. Some of these reasons are: Unfamiliarity With Driving Problems Lack of proper pedestrian facilities is still another factor. It is now being real ized that one of Jhe. ipajor causes why pedestrians have trouble, is'that street and traffic facilities have not been prop-', erly designed.- for them. For example, a 90 foot roadway in a secondary business district that has no raised Island or refuge for pedestrians. Other examples relate to traffic control signals. A pedestrian is. expected to obey a. signal even though Recalling that 9 of every 10 adults killed afoot are non-drivers and that most pedes trian fatalities involve persons aged 50 or over who formed-their habits of street use when there was no serious motor vehicle problem, it seems evident that un familiarity with the problems of driving is a major reason for their accidents. Relative Invisibility of Pedestrians there is no' signal face directly in front of him as he crosses.' Most signals but to advise pedestriansj when they should no longer start to cross. At a considerable number of signalized intersections, ve hicles are allowed to| turn right on tire red light, thus' adding to'the pedestrians' troubles.' Behind it all, major reasons for existing pedestrian ills are the lack of local facts The ignorance of many pedestrians of how very close an oncoming car must be at night before the driver sees them, is. probably the greatest 'single cause of night-time accidents. The second greatest cause of night pedestrian accidents' is prob and even lack'of prefer analysis and use of what data are available. Most com munities in the United States haven't. known in many respects, what their pedes trian problems were and hence have not been in position to deal with them. ably the failure of the average motorist to Realize'that the pedestrian does not have a.proper understanding.on this im-. Majtor developments in' pedestrian con portant matter, and to adjust his driving ditions in the near futuri wilt be largely to take account of decreased visibility at through better traffijc education. There night. are several important point* which should Effects of Advanced Old Age The lack of keen vision and hearing added to their less agile pace and lowered alertness of persons of advancing years make them potential accident victims. It is probable that momentary lapses of at tention and unawareneBS of existing haz govern such educational programs. The rules for cooperative 'street use need to be sold,to the public. {Education should, hi large measure, be sfclecttve and directed toward areas of major need such as the elders, the non-drivers, the foreign' bom or underprivileged; and against those practices which produce the most pedes- BVI . ,4. v tri ini as ini ne a wi lot im a'< **V ed lai Cc an! of sti Pr bei pol the era An of: his !1 paj sta of] gai for art sta I are in Street and Highway. Traffic Section 7 , ', trian accidents. Certain basic understandr same as-' the Red Cross and operates in tags most be developed, such .for example approximately the. same manner. A dollar as the'large difference of speed of walk- charge is.: made for. the individual annual tag and of moving cars. Each pedestrian membership. The member receives a cam* needs to riealiae.the many, things to which paign button for use while the drive is a driver-must give attention, so that he ' on and he also receives a : membership will understand that , the driver is not card and'a Great Cross sticker to place looking at him all the tfine and may not on his windshield. We find' that people , indeed have seen him at all. . are made safety conscious when they pay , . . . their dollar to become members. The pro* conclade may I now anticipate' ceeds are used in part for supplying mate- . a que^cm which you may ask. That is: rials for traffic safety education- Thfi year "Who;pnt up the money for Cleveland's we ^ about 45.000 members. This co* edoca^imal campaign? Well, this came operative effort between the citizens, the largely from the Greater Cleveland Safety police department, safety agencies; and CounciL The Auto Club has likewise been industry iTthTbest kind bf ;eridencb that aiding greatly.. The Green Cross -Drive safety for the pedestrian as well as the of the Safety Council has become an in- motorist is a community, concern and in- __ stitutibn with an annual campaign . the terest TUESDAY AFTERNOON SESSION. October S, 1943 Group Session for City and State.Police Pressing;, Lt. C L Lycak, Traffic Division Police Department Decatur, HL _ i pfu*. . the Mental Attitude of Automobile Drived toward Enforcement By KARL ItENfflNGER, Chief of Staff, The Meaninger Clinic, Topek^KaSms insem& <s owm -j The. .thoughts, of the man inutile car are better known than the psycholbgy of the police officer,' whose , duty it isto control the] sometimes, feeble-minded,, often illit erate and frequently acadent-prmie driver.' An evolution has taken place in the role of the police officer and correspondingly in his soda! status. ... cers. .Motives and emotions are Just as worthy of consideration as brains and muscle. It .'is important to know why" a man wants to . do a .certain' thing, ifor ex ample, to become a police officer,' It is important - to know what .'concept the youngapplicanthasofthe profession he is about to join. What does, he hope to do Many advances have been made in the' in that profession? ' What ideals does he past ten years over the small town con have and what -sacrifices is he willing to stable and the dty political-appointee type make in order to fill his uniform witircomof law enforcement officer. State police or petence and pride? . ganizations have the advantages-of recent formation, new ideals and higher stand ards. These standards refer to physical status, intelligence and character. But intelligence, physique and character are not the only factors to be considered in the selection of competent police offi- There are atways certain secret satis factions or at least secret hopes connected with any new project. Does the young candidate for police training aspire, to this job because he wants to look important? Because he wants to butty people? Be cause he wants to have an. excuse .for n 8 32nd National Safety Congress, 1943 remaining away from his wife longer, officer, has aggressive, destructive lawless, hours? Because he likes . firearms and cruel;. selfish, ruthless tendencies within wants to economize on the expense' of him which are capable of coming to the' target practice? Sometimes these secret surface under the right conditions. motives are of determining importance. Actually we do not know very much ' about the deep personal motives that impel men to elect any profession'and certainly we know little about the motives that ac tuate prospective police officers. This does not mean, however, that it is impossible to' ascertain these motives, to study'them and their relation to the successful perform ance of the work elected, granted a co operative group of subjects. I call them tendencies to indicate that while they may rarely come to full expres sion; they are: always, there. Civilization is nothing other than the development of a program for controlling these aggressive impulses. Our entire lives are spent- in trying, to mapfer and refrain from express ing them, ami in helping others to do like-: wise. We (are constantly losing partial, control of these tendencies and requiring help from oof neighbors or our police- From a study of 50-odd police offi officers or our wives. cers of the Kansas State Highway Patrol a number of technical facts of considerable interest were learned. Some inferences were derived, partly from our study of these officers, and partly from a study of other people--persons who have been arrested, and persons who were in need of help for medical reasons. Now and then some individual gets so confused that he begins to defend the principle that he has a right to be all the things that society and civilization have agreed to prohibit He may call it nigged individualism, he may call it expressing himself, and he may call it taking the law into his .own hands.'. First of all, the police officer,- in choos- " ing his profession, is electing to be a However, thoughtful people know that in the long, run, no matter how it is glori superman.. He is saying that he wishes fied or justified or legalized, lawlessness . to announce himself as stronger, wiser, does not worlc And in an effort' to banish calmer, more law abiding and, in general, it from our society and banish it from our a better man than ti^e average man. In lives, we have developed a lot of things some of these respects he can prove his. that help. point; for example, in physical tests. Ere- . r . - ; . quentiy, although not always, he can prove . his point in.respect to intelligence. One' of .these -aids to the control of: aggressiveness is good maimers.. Now susd \ then a police officer, gets the hard-boiled -But in some of these respects it is hard ' sergeant's idea that good manners are not to prove that one. is a superman,- bard in very important. We know-lie is mistaken.. deed, to be a superman. Nevertheless, a After all,., the customs and laws of the superman is exactly what a police officer country are merely some rales.abont good' has to be. Why? . manners. It simply is not good manners Must Control Impulses to take another fellow's property. It used Because he has to be able to control to be, but it isn't now, and it .'is written completely his. own criminal, impulses! down in a book so H is called a law. This few people can really do. - Good manners help.! So does education. We have to remember that 'all of the So does religion. So do work and play. radios, bathtubs, neckties^ cosmetics and In work one has to {destroy 'something; automobiles in the world--all-the things . it -is certainly better to cut weeds than that we call civilization--constitute a,very to cat throats, and it takes the same,kind thin veneer over the basic biological nature of energy, psychological and physical It of people who drive the automobiles and is better to beat a.gjolf ball around the use the cosmetics, listen tp>tfiitTradjos, do links or to heat somtone at tennis than the arresting, etc. Every htcria^n bring,, to use up this same energy hi a fist fight. . whether he is a Japanese soldielr, a Ge' stapo thug, a quiet littlevgrqceryman, a priest, a poet, a drunken btnn^a''president People Need Umpires To this list of som<j thingsthat help in of the' WCTU, a' racketeer or a police the. control of the djestrnCtive impulses, , ' |* % O Street and Highway Traffic Section 9 5S tin be at !S- on of ve in is- ;e^ ial Dg ice- - so hehe ve ed ng tw at-- f ri- !SS . sh nr of: ad .. ed - iOt Id. . he od r ir-s '. ed . en in. iy. ; u. md It be an it. in ts. , l give a prominent place to the function of stroyers, of the law. They think that-to - the'"umpires." This is my. conception of insure respect, they must instill fear: police officers of the new type--an umpire Every" police officer has to remember or linesman, whose primary-doty is not that people are not only animals, they are . to arrest people, but to enable people to also children. No matter how old; they avoid the necessity of -being arrested. - are, they are always. in certain respects - People need policemen. children. This is one reason why the man. . People are most comfortable when they behind the wheel in a high powered;auto fed there are rules and regulations re- . mobile is such a different individual.1 from garding such things, as. driving, for ex- that same man as a pedestrian., A' child. ample, which exists for a reason (the rea is small and-weak and he knows it and son of safety, naturally) and from which it he thinks when he grows up. he will be big is not the privilege of any individual to and strong,-biit when we grow-up we find break.* .. ' They are more comfortable when they feel that such rules andjiegulations are en we are not very big' and not so! very strong compared to all the' forces in the world. j forced by umpires who are not inverted Inferiority Complex !__ -footpads but who are friends of the driver, not of one driver but of all drivers. Hence, all people continue to -suffer from a feeling of inferiority. If one gives If such a policeman , must make arrests, such a person a 90-horsepower engine that he does it in a very different way from the will run many times faster :than the most pfedatory sadist, the stnall-man-in-big- vicious step mother, or the - most: -irate bliie pants who exploits his authority to uncle or the most vehement father---give the discomfiture of an occasional offender such a grown tip child a machine like this bat who in the long run encourages law- and what . does he care . for little; bitie- . breaking. coated policemen Or little.'printed [signs But to have this attitude, a policeman that my "slow," or little marks in air book . has to be a superman. Policemen must that say "30 miles an hour.'' The child in master their own aggressive, destructive, him is always' tempted, to- forget the rales sadistic impulses, before they cgn effi and penalties and"all the'realities of social ciently master8 them in others. A police . existence. ' -- officer becomes in fact a representation Bat the police officer has to remember of the conscience; It may either.be a con- - them and has to remember .the child in ' . science of ideals or-a conscience of ven- every man and. the beast in every man-- . - geance. The. police officer las many even in himiclf. If the, child or the! beast temptations, and one of them is to. use - in the man: has become dominant, the his power and authority vengefolly, and police .officer pan no longer standi;-as a . 'hence destructively, instead of construc- 'symbol, a reminder, a. warning. ; tively. The' possession of authority is a great burden. Few can bear it; and. still _ fewer can be trusted to employ it <on" strucrivcly. He most act Empowered by his author ity, he mnst oppose the irrational childish ness or the ruthless beastliness of the driver.; He must put himself on tlie side The man who has secret inferiority feel- of the . driver's better-mif; :his adult self, . -ings, the man who lacks-self-respect, the his mature self. And the police -officer man with an overstrong, vengeful con- should never; forget, there Is, such a seif.. - science, the man with such a burning re -Even the worst man has bis. ideals.. It - sentment toward the authority he has had is on the side of thesie'ideals, , on tike side to .submit to--such a man will become a of this offender's intelligence^ consjcience, bad police officer, a man who promotes knowledge and better, judgment, that the public danger rather than- public safety. policeman most aUgn linnself. Tins: is the .It is of. such men that prison, bullied part of the offender"which must not be sadistic third-degree inflicters, concentra- ' . frightened by the policeman but-stijength- tion camp torturers and corrupt wardens . enedLlt needs helpfrom the policeofficer are . made. Shch ' individuals,,driven the in suppressing the rebellious, ebullient authority of the law, become the de element ofthe personality. - | " " '' i 10 32nd National Safety Congress, 1943 How shall we get supermen of this type into the police profession? How can we get men who are big enough and balanced enough and perspicacious enough to carry the necessary authority without being bullies? ' Need Leaders With Vision . First of all, by clearly defining for policemen, for officers, for law-enforce ment officials of all kinds, the definite psy chological requirements of the modern police officer. Then we can look first for leaders who hare caught this' vision and can impart it to others. But these men can rise up and new men can learn the way only if systematic educational programs are provided for the training of police officers not only in marksmanship but in psychology. A further way in which such men can be obtained is by making the monetary compensation of police officers appropriate to the real requirements of the job. It seems absurd to expect men of superior attainments to be attracted by positions which pay sub-standard salaries and offer limited opportunities for advancement. No honest man who goes into police work ex pects to get rich but he should expect, (although I am afraid he cannot now ex pect it). to'Jiave economic. se<jurity, credit for creditable work and an opportunity for advancement on the basis of merit-, ..Toward better compensation, there is needed an increased recognition on the '* part of the' public of the: principles of safety policing which I have outlined. But for the public to appreciate it re quires that we appreciate ourselves. Noth ing is more human than; the plaintive wail that no one appreciates us. Every psychiatrist hears it every day from almost every patient as well as his secretary, nurses, colleagues, and to say nothing of his own complaints to his-wife and his friends. a*. It is true that no one is folly appreciated by others bat to gain even some of the recognition one deserves, it is necessary to.appreciate one's self, not m a false, mis leading way, but in a way of true ap praisal. ., When police officers come to have a high opinion of themselves, recognize that they are leaders in the community, the conscience of the community--umpires in the great game of semi-domesticated hu man beings trying to live peaceably with one another in a complicated world, they will inspire similar respect, support and admiration from the public at large. TUESDAY AFTERNOON SESSION October 5, 1943 . Group Session for Traffic Court Judges and Prosecutors Wartime Problems of the Traffic Court By JUDGE EARLE W. FROST Municipal Court, Kansas City, Mo* and Chairman of Committee on Traffic Courts of the National Safety. Council The all out wartime objectives of con Defense Workers servation of manpower, war material' and transportation have been seriously threat ened by the continued high general traffic Defense workers engaged in essential war work are responsible: for a dispro- toll, and particularly by .certain major ' portionately large, percentage of traffic- wartime traffic problems resulting from violations. This may be doe to the great increasedfrequency of traffic violationsby influx of such drivers into metropolitan defense workers, members of the armed areas, many of whom are wholly inexperi services, and juvenile and parental de enced in city driving and unfamiliar with linquents. even standard driving regulations, and. .* : Enforcement KANSAS HIGHWAY PATROL Reprint from the ; "Bulletin of the Menninger Clinic Vol. 9, No. 1, - January, 1945" PSYCHIATRIC ASPECTS OP HIGHWAY TRAFFIC LAW ENFORCEMENT* By Kabl Mbnnxnges, M.D. It is a very impressive experience for one like myself, unac quainted with the*extent to winch the program of safety planning has been developed, to attend such a Congress and Exposition as this, filling three large hotels with a Week pf intensive programs. The growth of interest in the important problems associated with the general idea of "safety" is indeed enheartening. In strolling about through these miles of booths, reading the ecEusv. cational placards and examining the mechanical devices for the pre vention of accidents; I was struck by the fact that the emphasis seems to be so preponderantly on the ride of mechanical prevention, as if the psychological factor in safety insurance were something only incidental and relativ^y negligible. I realize that this is partly due to the fact that the psychological factors in accidentprevention are not something which lend themselves to commercial displays. But this would not explain the absence of topics on-the program dealing with the psychological factors/ I shall feel the more justified, for this reason, in limiting myself exclusively to the psychological factor in this presentation, par ticularly as it applies to the problem of highway safety. One could discuss this from many standpoints and, hence, I must make a fur ther selection within this selection. Many studies have been made; for example, of the psychology of automobile drivers.f Wc' know from such studies tb&t drivers are often feebleminded, often illiterate, often totally unskilled in driving, often defective in vision, sometimes physically or mentally ill, and occasionally acci dent prone.?: When arrested for* violations they are occasionally belligerent, defiant, supercilious, and uncooperative, but always ' scared! The psychology of the man in . the car however is better known to us than the psychology of the man outside the car, the . * Presented at the thirty-seeond National Safety Conmn and exposition. State end Hiih- way Traffic Section, Hotel 6fceroum,Chieago. Illinois, October 5,1B4?. A modi shorter radon of this article omitting some scientific data was published in Jtub- lie 3o/sty, August, 1044. . . __ fOne of. the beet of these is that of Dr. Lowell Selling, Director of i&e'Psychophatio Clime of the Beeorder'a Court of Detroit, who, with his numerous assistant physicians and Feycbriogist*, has published many articles on the subject. , $Begarding this latter category, aea the discussion of purposive accidents in the author's J/a* Affauutllimtfif, N. V., Hsieourt. Brscc A Co., 1838. (3) 4 Kansas State Highway Commission police officer whose duty it is to control these sometimes .feeble minded, often illiterate and frequently accident prone drivers.. ^ It is unnecessary for me to tell this audience that an evolution has taken place in the career and role of the policeman, and in his social status. I am not here to make invidious comparisons, but i we all know that many advances have been made in the past ten years over the smalltown constable or the big city political appointee type of law enforcement officer. We know that the state police organiza tions have had the advantage of recent formation, hew ideals and higher standards. lime was when the physical requirements of the policeman were the chief considerations in his selection. I recall an amusing-dis covery of one of my colleagues about twentyrfive years ago. He had a theory that crime could be directly related to feeblemindedness. He tested all the prisoners in a certain large state Penitentiary and the general intelligence average was indeed low. But to.check his findings, he them tested all of the guard^ taking care of these prisr oners and also a group of policemen, and he found the average in telligence of the men in these groups to be even lower. So he gave up his theory, but he started some thinking on the part'of law en forcement people. / :. The state police of today constitute a superior group, not only physically but in point of intelligence. Intelligence arnkphysique, however, are not the only factors in the selection of competent police officers. In modem psychiatric thinking we are no less concerned with emotional factors and motives than with brains and muscles. We think it is important to know, for example, why a man wants to become a police officer. We think it is important to know what con cept the young applicant has of the profession he is about to join, what he hopes to do, what ideals he has. for himself and his prq- fesrion, and what sacrifices he is willingto make in order to wear his uniform with competence and pride. Then again we know that there are always secret satisfactions or at least secret .hopes connected with any new project; Does the young candidate for police' train ing aspire to this job because he wants to look important? Because- he wants to bully people? Because he wants to have an excuse for remaining away from his wife longer hours? Because he likes fire arms and wants to economize on die expense of. target practice? Sometimes these1 secret motives are of determining importance. . The fact of the matter is that we really do not know very much about the motives that impel men to elect any profession or field of Psychiatric Aspects of Traffic Policing .' - 5 ' V t']5' work., Few of us in;this room today would be satisfied with his o'jvn explanation of the reasons why he chose the work he is now doing. This does ndt mean, however, that it is impossible to ascertain thijse motives and to study them and their relation to the successful per formance of the work elected;- granted a cooperative group of subjects. .* i During the past year the officers of the Kansas State Highway Patrol (an organisation of which I have the honor to be a member), under thedirection of Colonel Will Zurbucken, have cooperated with the medical and psychological staffs of the IJenninger Clinic id a rather elaborate study. One after another of there gentlemen pre sented himself at our Clinic, gave us a history of-his life, interviewed one of our psychiatrists, took .an intelligence test and gave his re? actions to a number of other technical psychological tests--the Rorschach, the BILL. Sorting Test, the Thematic Apperception Test, and others. As a result of these studies we were able to draw some conclusions about the personality structure of. a group-of police officers, all of whom bad been carefully selected^nd carefully trained, and all of whom were functioning in a superior manner. From tins study of fifty-four police officers, we learned many tech nical facts of considerableinterest. Through the kindness of I)r. Dayid Rapaport,,Dr.'Merton Gill and Mr. Roy Schafer, who maide mosuof the studies; I can report briefly what some of these findings were, and what they showed as to the motivation of the patrolmen: first of all, 32 of the 54 (60%) were found to be well adjusted individuals, 17 (31%) showed some maladjustment features, and' onjy 5 (9%) were definitely maladjusted: Interesting light is shed ' upon, the nature of their adjustments to life if we consider the de gree and kind of aggressiveness of these patrolmen as revealed by .one of the psychological tests (the Szondi test). In general.we can say that the patrolman appears to be a man ready to be aggressive in a controlled Way. Clinical investigation revealed the parallel fact that there men liked to be active and to move around. They are good fathers and husbands when at home for a short time but get restless and anxious if they stay home long. ' The patrolmen who are under a greater tendon than the well-adjusted-ones, attempt in general to inhibit these aggressions with some degree 'of resulting maladjustment. For the good patrolman, curbing other people's aggressions would seemto be an outlet for his own. Howeyer,.if he is so aggressive . that the patrol life itself does not proride sufficient outlet for Ids $ Kansas State Highway Commission aggressions, he is apt to either infringe on ihe regulationsor to in* hibit his aggressions and become or remam maladjusted.. : Another datum established by this investigation reflects the change in the functioned the patrol in the last 20 years. Twenty-one officers .(30%) were of superior (I.Q. above 119) or very superior intelligence, id (33%) of "bright normal" intelligence (I.Q. between 111-and. 119). Fourteen (26%) of high, average intelligence, (I.Q between 101 and 110) and only one (2%) of low average intelli gence as measured by the Bellevue-Wechsler Intelligence Scale. One would expect, according to the old concepts, to find that patrolmen are outstanding in their bodily coordination of movements and in manipulations, while relatively unarticulate in their verbal, facility. Actually however, the opposite proves to be the case. Statistical tests indicated that the patrolmen's verbal facility and thinking are definitely superior to their manipulative coordinating performance. This shows a radical change from the concept expressed in the "arm- of-the-law," to that of the officer whose task is mainly to think and talk to avoid using force. This fact is the more striking since better than half of the. men come from a rural background which in itself would favor manipulative over verbal facility. The manifold considerations open hoe for selection, of and train ing for the job of patrolmen is hereby merely touched upon. Be cause we believe that thet cultivation of hobbies represents a con structive adjuvant to good adjustment, it is. interesting to note that only eight of the fifty-four had no hobbies; fourteen of them made collections of guns, pipes or other articles; thirty were fond of hunt ing and fishing; ten were interested in various forms of athletics; four in farming, eight in mechanical shop work; four in music; and * a number of others in such miscellaneous fields as navigation, mete orology, photography and public speaking. The main point is that the police officer in choosing his profession asserts-that he feels sufficiently in control of his own aggressions to be able to assist others to control, theirs. He elects to be regarded as a superman and in reality, has to be one. He asserts (by impli cation) in applying for.admission to the Highway Patrol, that he believes himself to be stronger, wiser, calmer, more law abiding, and. in general, better adjusted than-the average citizen.- ' ., In the physical tests, these men must prove their point in order to be accepted. The psychological tests reported show that usually, although not always, the patrolman proves his point insofar as in telligence and life adjustment are concerned. Psychiatric Aspects of Traflfc.'Policing !? Now it is veiydifficult to be a superman at all times and ia , ^11 - respects and yet that is exactly what the police officer has to-be and must continue to be., It is very important that he realize this apd realize also the reasons why it is necessary. Hence,in The Kamias State Highway Patrol-school for prospective officers held unjler the direction of Colonel Zurbucken and Major Rutherford, we explain it and emphasize it as an important,part of the preliminary training. What I (as one of the lecturers) tell the men is something like the material of the next few paragraphs. . From time to .time we have to remind ourselves that all of. the radios and bathtubs and neckties and cosmetics and automobiles in;/ the world-rail the things that we call civilization, constitute a very"; thin veneer over the basic biological nature of the people who drijve the automobiles and use the cosmetics, listen to the radios, do the arresting, etc. Evety human being, whether he is a Japanese soldier, a Gestapo thug, a quiet little groceryman, a Catholic priest,; a poet, ' a drunkard, a racketeer or a police officer, has aggressive, destructive, lawless, cruel, selfish, ruthless tendencies within him which are cap able of coming to the surface under the right conditions. I call them tendencies in order to indicate that whether or notdhey ever coitne to hill expression, they are always there. They areinstinctive, they are persistent, they never die out so long as lifedasts antHhey are capable in anyone ofexpansion and exploitation. Civilization is nothing other than the development of a program for controlling these aggressive impulses. Our entixe Uves are spent ' in trying to master them and to refrain from, expressing them iinappropriately and in helping others to do likewise. We are con stantly lotting partial control of these tendencies and requiring help from our neighbors or our police officers or our wives.,Now and tlien some individual gets so confused that he begins to defend the prin- ciple that he has a right to let them go, to do aU the things that society and civilization have agreed to prohibit;'. He may caR'.it "blowing his top" or "losing his head"; he may call it rugged indi vidualism, and he may call it expresting his personality, and he onlay call it taking the law into his own hands. But there can be no doubt as to what it is;.it is just as damning as liquor on one's breath.or ' : stolen goods in one's hands, and when such an'individual has sobered . down he will adotit.it if he is not psychotic. It is criotinality. , Indeed this is the very thing that World War ll is all about For. reasons that me partially understandable but totally inaccepteble to^us, the Germans and Japanese have renounced-the attempt' to 8 Karma State Highway Comnwsion "4 control these aggressive, destructive, cruel impulses. They hive, on the other hand,'glorified the" expression of brutality and ciruelty. They have evolved a curious, doctrine of pseudomaseulinity accord ing to which one is only a man if he acts like a beast. ,; Meanwhile most of the thoughtful people of the earth know that in the long run, no matter how it is glorified or justified or legalized, lawlessness does not work. And in an effort to banish it from our society and banish it from our own lives, we have developed a lot of things that help. ! One of these is good manners. After all, the customs and laws of I\ the country are merely some rules about good manners. It 'simply is not good manners to take another fellow's property.. It used to be, but it isn't now, and it is written down in a book so it is called a law. It is not good manners to take the food off another man's plate. That isn't written down in the books so it isn't a law but it is the same principle. Now and then a. police officer gets the hanl- - boiled sergeant's idea that good manners are not very important.. He is mistaken. ' ' * ,.w i. Good manners help. So does education. So does ,religion. Es pecially, I believe, do work and play help to control the aggressive ness in us--we can work it off and play it off: In work one has to destroy something; it is certainly better to cut weeds than; to cint throats, and it takes the same kind of energy, psychological and physical. It is better to beat a golf ball around the links or to beat someone at tennis than to ute.up this same energy in a fist fight' Last of all, in my list of tilings that help to control destructive im- ' pulses, I would like to put "the umpires." This is my conception of the police officer of the new type--an umpire or linesman whose pii-. mary duty is not to arrest people but to enable people to avoid the necessity of bring arrested. People need policemen. People'are most comfortable when they can have the feeling that there are rules and regulations regarding such things as driving, for example, which exist for a reason (the reason of safety, naturally) and from which it is not the privilege of any individual to take exception; they are more comfortable when they feel that such rules and regulations are enforced by umpires or referees. These must be honest officials, not wolves, not bullies, not inverted footpads who want to sneak up on someone or get something on somebody, but Mends of the driver, not of one driver but of all drivers. People want to feel that these policemen are persons of friendly authority like the doctors who say you may do this and you may not do that; you have beenmakmg Psychiatric Aspects of Traffic Policing 9 a mistake; it's better to do this. If Such a policeman must make, an arrestj hedoes it in a very different , way. from the predatoijy sadist, the small-man-in-big-blue-pants who exploits his authority to the discomfiture ofnn occasional offender but who in the long rtin .encourages law breaking and the defiance of and disrespect for the guardians of.public safety. People like this kind of supervision;! a policeman who has this attitude furthers public safety and makes people love the policeman instead pf fearing and hating him. Those. whom, we love we strive to please, not out,of fear but out of that very love--call it respect, admiration or anything else you wish, but it really is love. The police officer has many temptations, and one of them is to use his power and authority vengefully, and hence destructively, instead . of constructively. The possession of authority is a great burden and there are few who can bear it, and still leV{cr who can be trusted to. employ it only constructively. The man who has secret feelings 'of inferiority, the man who lacks self-respect, the man with .an over strong, vengeful conscience, the man with a burning resentment to ward the authority to which he has had to submit, such men will be come-bad police officer^ officers who promote public danger rather than public safety. It is of such men that prison bullies, sadistic third degree inflicteis, concentration camp torturers and corrupt wardens are made. Such individuals, given the authority of the law, become the destroyers of the law. They think that to insure respect, they must breed' fear. But, as a very wise old police officer once iremarked to me, the bullying policeman is always a scared policeman. "If you are not scared yourself/* he said, "you won't try to score other people." I. felt as If I. had learned a great-lesson from this man who had never stwfied any psychology in books. I told him I thought,he knew more about it than I did, and he said, very mod estly, "No, but I have learned a few things the hard way, and Fm glad you are telling these young fellows something they don't realize the truth of as well as I do." The man behind the wheel of a high-powered automobile is a different individual from that same man as a pedestrian. A child is small and weak'and he knows it and he thinks that When he grows up he willbebig and strong, but when he does he discovers that he is not so very big after all and not so very strong, when compared to all the forces of the world. Hence all people who are not outright' feebleminded continue to suffer from a feeling of inferiority all.their lives. For some of them it remains a rankling sore; they are con- 10 Kansas State Highway Commission stoutly impelled to deny it ox*refute it. Give 'such a person a ninety horsepower engine that, will run many times faster'than thej most vicious stepmother or the most irate unde or the most , vehement father, give such a grownup child a machine like.this and why should he care any more in his secret soul for little blue-coated policemen, or little printed signs that say "SlowI" or little marks in' ' a book that say, "Thirty miles an hour limit'?? If the child or the beast has become dominant Jn a man, the police officer can no longer stand as a symbol, a reminder, a Warning. He must act. Empowered by his authority, he must oppose the irra- tional childishness or the ruthless beastliness of the driver. He must put himself on the side of .the driver's better self, his adult self, his mature self. The police officer should never forget that there is such a self. Sometimes we talk so much about the bad side of human beings that we forget to mention toe good side. Ejven toe worst man has his ideals. It is on the side of these ideals, on the side of toe offender's intelligence and conscience and knowledge and better judgment, that toe policeman must align himself. Thisjis the part of toe offender which must not be frightened but strengthened by the policeman. It needs help from the police officer in order to suppress toe rebellious, ebullient elements of the personality. ! This explains the importance, then, not only of intelligence and character in toe police officer but also of technique. To be. sure, certain superior personality types come by the right techniques naturally, but for most of us they have to be learned, to be thought about, to be practiced. In no other way can fear, hatred, defiance and ultimate defeat of the.police officer be\ prevented. It is not sentimental but highly practical to insist toafetoe public's fer of toe policeman be replaced with affectionrand truht. j How shall we get supermen of this type into toe police profes sion? How can we get men who are big enough and suffidently well- balanced and perspicacious to be entrusted with toe necessary au thority without bring bullies, to be fathers and big brothers and friends to drivers who, as we said at toe beginning, are sometimes feebleminded, sometimesilliterate, sometimes, accident prone, some times sick, and very, very often childish and forgetful? How can we find policemen who can measure up to their own idea ls and standards of such supermen? I think we can do this, first, by clearly: defining for policemen, for officers, for law enforcement officials of all kinds, the definite psy chological requirements >of the modem police officer, perhaps! some thing along the lines of toe foregoing. .[ Psychiatric Aspects of Traffic Policing U Secondly, we can look for more leaders who have themselves caught this vision and can-impart it' to others---such men.as August Vollmer and Neil Anderson of California, Chief 0. W. Wilson formerly of Kansas, Colonel Zorbucken and his associate, Major Rutherford--men like these I am sure are not so few as they are merely Inconspicuous and unknown to me personally. You, in tins field, know who they are and where they, are and if you. give them the encouragement they deserve you will find other young mien ris ing up to follow in their footsteps. . But these men can only rise up and new men can only be expected to leam the right ways if systematic educational programs are pro vided for the training of police officers not only in marksmanship but in psychology. A fourth way in which such men can be obtained is by making the monetary compensation of police officers commensurate with the real requirements pf the job. It seems absurd on the face of it to expect men of superior attainments to be attracted to positions which pay ' substandard salaries and offer limited opportunities for advance ment. No honest man who goes into police work expects to get rich but he should expect economic security, credit for creditable work and' an opportunity for advancement on the bads of merit. These 'things have all been said before and I am afraid they will sound very hollow to some of you who have hoped and worked for theb so long They are essentials just the same--essentials which it is in - the interests of public safety to insist upon and extend. . r Finally,- in order to' get the type of men into police work,that we have described, we need increasing recognition on the part of the public of the principles of safety policing. Nothing is more human than the plaintive wail that no one appreciates us. Every psy- ' . chiatrist hears it every da^ from almost.every patient. It is quite true that no one is fuUy appreciated by others. But to gain the recognition that one deserves it is necessary, first of all, to appreciate oneself, not in a vain way but in a manner of true appraisal. When police-officers come to have a higher opinion of themselves, recognize that they are leaders in the community (the conscience of the com munity, as. it were), umpires in the great game of semi-domesticated human, beings trying to live peaceably with one another in a com plicated world, they will inspire similar respect, support and admira- tion from the public at large, and men of the hipest type will be attracted to this brave, fine profession.  ( :-'S- Street and Highway Traffic Section :b| whom one.' too irresponsible to be the excuses- assigned for failure to take1 trftlr an Automobile. preventive measures, -has been that the! _ the Special enforcement and task is too grtat and ought result, in .some! problems arising otrt of these viola* instances in eliminatittg the transporta-f Vis the provision of;-court sessions tion means of a majority of the workeraj of workers to avoid conflict -with Accordingly, again, about all that' can schedules.? This problem requires be done to solve the problem is to im* and varied traffic, sessions. The ses- pose appropriate fines and penalties in tJuf ;mnst be staggered to meet the dif- event of violations and to impound thif work shifts. Traffiif'cases mustbe equipment until made safe,- after viola i, continuances "reduced to a tions,have occurred; /and trials /expedited. A definite traffic safety educational pro order to provide appropriate arrest gram should be provided for Wdrieers ity -:jbpfildng; procedure : to avoid delay, defense industries.. Such' education^ . is det&nticm of wotfcers, `arrangmuen^ particularly necessary for/ workers int-. .between mr iadosbies asd enforce- volyed in major traffic violations, and; tbje officials siU ptymituse of' ticket courts should utilize court; room educsl- for speeding and minor viola- tion and require compulsory traffic school ;-.aad eliminate bonds , normally , ire- attendance for such, violators. -y becauseof non-residence: of work/|srithin/.: jurisdictional boundaries. required for more. serious violashould be moderate in amount and procedures shpuldbe simplified. of coun5e, priniarily a problein of JjnfOi^mmit offioa^ A sound analysis' ofj the enforcemeiit problem would indicate that war.workety deserve no special consideration from tile courts.of law or law enforcement officials, " other than the measures before stated, and that war wprfctyis mnst- exped; to pity ' the fall penalty for traffic" violations; |n. . imposition of; fines rather, than' fact/ thesie'violations; are so damagingto of confinement, and installment the war effort, resulting in the aggregate of fines in: cases Where; defend-, in much absenteeism and.gitat floss jol jcannot pay their fines ih fulk provide' ' manpower that, if. anything, more drastic :/best solution W the-problem of satis-. , penalties.sbonld behnptwed.onwar:woi;k- 'penalities'. without conflict With 'ers to bring tbeW to a' Wdiiatida of the ag-'hours.'.. ;'? serioasnessof such violations;" . 1 .. :;ifni^te''f)rivera andBquipment. Vhriatkms iriScxvicelfen iprict WttWition shouid be given to the In cases of traffic violations* of mem ' " *tkm of unsafe drivers, particularly bers of the military services, the question * carrying other; jassehgersi for of; the legal jurisdiction-;: of | civil '.traffic ;:'/;If we; tod adequateexammations courts arises. In Wartime, although rwimrements for`the issuance of the; civil and military courts' have, con* ......_ :;Wjt Wtihkf nobtm tff dcat with current jurisdiction^ the military courts i'j;to;.the" extent that netxssarytoday - have superior, or. paramount. jurisdiction, ^ ; and unless this juHsdiction is; waived; by itirenientt.;? Until: suc^ conditions :are the miUtary authorities and consent gtyen abbot alt that can be done is to to trial in the :.dril court? the civil jjaur ite the unsafe , drivers after viola- thorities can only detain meinbers of the have occurred by suspension or military; services and hold them for the, ition. oflicenses. military authorities.? * ':. J ' Jnsafe equipment within defense plants. It has . been established that , any lion` icdiatety .eliminated or replaced on sent to . civil trial for, military perssoononelr b . IlbWmnWt ^npfle* if anything, must be made by the cpmmahding oflficer |;'b^aB.v.ddne.. to-'eliminate unsafe auto- of: the individual to be tried. The[ ac ttibty carryingthesame workers to and cused1 person does not have the right to . Wade. This undoubtedly , has re- select the tribunalby which, he is-to be i::in:-|haifiy actidehts and loss of much tried. ippwer . because . of; injuries.? One- of Close contactanti cooperation, should m 'w* :;W *=-:','.}M|i Street and Highway Traffic Section 11 ;r ie of whom are too irresponsible to be ;ted with an automobile, mtong the special enforcement and problems arising out of these viola- m '#$ps is the provision of court sessions J0'?& [pjflis trial of workers to avoid conflict with ra* schedules. This problem requires &*** and varied traffic sessions. The sesmust be staggered to meet the difiSriWIifent work shifts. Traffic cases must be { Jtjjregated, continuances reduced to a rV^is^timum, and trials expedited. i^n order to provide appropriate arrest booking procedure to avoid delay detention of workers, arrangements le between war industries and enforceit officials will permit use of ticket imonscs for speeding and minor violais and eliminate bonds normally* re td because of non-residence of work- within jurisdictional boundaries, ids required for more serious viola- should be moderate in amount and pking procedures should be simplified, is, of course, primarily a problem of enforcement officials. *he imposition of fines rather than tences of confinement, and installment rcnent of fines in cases where defend- cannot pay their fines in full, provide best solution to the problem of satis|ng penalities without conflict with irking hours. the excuses assigned for failure to take preventive measures has been that the task is too great and might result in some instances in eliminating the transporta tion means of a majority of the workers Accordingly, again, about all that can be done to solve the problem is to im pose appropriate fines and penalties in the event of violations and to impound the equipment until made safe, after viola tions have occurred. A definite traffic safety educational pro gram should be provided for workers by defense industries. Such education is particularly necessary for workers in volved in major traffic violations, and the courts should utilize court room educa tion and require compulsory traffic school attendance for such violators. A sound analysis of the enforcement problem would indicate that war workers deserve no special consideration from the courts of law or law enforcement officials, other than the measures before stated, and that war workers must expect to pay the full penalty* for traffic violations. In fact, these violations are so damaging to the war effort, resulting in the aggregate in much absenteeism and great loss of manpower that, if anything, more drastic penalties should be imposed on war work ers to bring them to a realization of the seriousness of such violations. Unsafe Drivers and Equipment 8#f] u p- J -'Vvj 'Strict attention should be given to the mination of unsafe drivers, particularly >*ers carrying other passengers for If we had adequate examinations id requirements for the issuance of [cense, we would not have to deal with is to the extent that is necessary' today cause of the woefully inadequate license quirements. Until such conditions are rhanged, about all that can be done is to ^ liminatc the unsafe drivers after viola- Jji] ions have occurred by suspension or Hi] evocation of licenses. Unsafe equipment within defense plants ! immediately eliminated or replaced on t isfcovery. However, little, if anything. a? keen done to eliminate unsafe autofM idbfles carrying the same workers to and Vji.jBJom work. This undoubtedly has re`S&tlfted in many accidents and loss of much ^^anpower because of injuries. One of Violations of Service Men In cases of traffic violations of mem bers of the military services, the question of the legal jurisdiction of civil traffic courts arises. In wartime, although both the civil and military courts have con current jurisdiction, the military courts have superior or paramount jurisdiction, and unless this jurisdiction is waived by the military- authorities and consent given to trial in the civil court, the civil au thorities can only detain members of the military services and hold them for the military authorities. It has been established that any con sent to civil trial for military personnel must be made by the commanding officer of the individual to be tried. The ac cused person does not have the right to select the tribunal by which he is to be tried. Close contact and cooperation should : .1t j 12 32nd National Safety Congress, 1943 ! be established, between the civil and creased frequency of .accidents involving military law. enforcement authorities. drivers and pedestrians of this type- This^ - Through such cooperation, arrangements is the natural result of the incireased num can be made for the handling and deten ber of such drivers and pedestrians on the tion of military personnel so as to permit streets and highways at night and their, trial in rite civil courts -for minor offenses free use of intoxicants.. Traffic .courts or to facilitate transfer to military au must cooperate with other agencies to thorities for trial. It is imperative, of solve this problem. The manner in which coarse, that the civil authorities furnish these delinquents indirectly affect traffic military authorities -complete reports on accidents, should be kept in mind in violations and competent evidence to sus handling cases involving such individuals, tain the charges. The civil authorities whether the cases are for traffic or non-'- 'should insist on reports of the final dis traffic violations. . - <r position of cases turned over to the mili tary to complete their records. The mili tary courts generally can be relied upon ' to impose, more severe punishment than civil courts, which probably accounts for the apparent desire of many members of the military service to have their traffic violations tried in the civil courts. - Reconciling apparently opposing fac* tors is necessary in handling traffic court problems involving war workers aad` members of the armed serrices. Both must be kept on the job. On the oth^r hand, the ideal and practice of fair and ' impartial traffic law administration and all that .has been - accomplished in the Juvenile and Parental Delinquency cause of traffic safety must be preserved, Nationwide juvenile and parental de and`where necessary, drastic and severe linquency is the latest wartime problem,. measures. must be applied to stop the and is a problem that indirectly affects carelessness that is seriously impairing traffic safety by contributing to the in our war effort TUESDAY AFTERNOON SESSION October 5,1943 . Group Session on Public Safety Education Bound Table Discussion on Safety Education Tactics in Wartime The first session for the public educa tion group was a rohnd-table lead by Leo - R. Welch of New Jersey. Points discussed in this session stressed the need for reach ing the groups of people who were causing accidents and yet bad not been reached under previous programs. A wartime program for safety education must be based on the following points: (a) public relations, '(b) public education,: (c) training, (d) local cooperation, (e) re-: search and planning. , Discussion of films for public education dealt with, the matter of whether the most. horrible pictures should be shown, 'to gether with the relative merits of various films available. There was discussion on how to.make a safety talk more interesting andj&e mat ter of using stunts, dramatization and. comedy were all given considerable debate. In the use of films it was agreed that stu dents should be given an outline of the film first in order thit it may . not be . considered purely entertainment. While fitting public education programs to the present times, it was emphasized that some influences wBl be very; valuable later on. The training of military per sonnel, civilians, motor corps members and high , school students under the pre^ induction training plan] had met with un usual success in several; states.' Another 'adjunct of; safety education which should not be under-esiamated is the development of local cooperation: Usually it-is easy to obtain and often the success of the entire program is dependent upon this assistance. ' j. : Another. suggestion > was ; that serious consideration must be; given how to the possible necessity for the re-examination of drivers .after the war when mental ap well as physical defects will pose a defi nite problem to the motor vehicle ad ministrator.- ,/  . . Street and-Highway Traffic Section . , TUESDAY EVENING SESSION October5,1943 13 , - Joint Sesnon With Commercial. Vehicle. and Transit Sections and -. Institute of.'Traffic Engineer* Women inTransportation , By DOROTHY SELLS Chief, Personnel Supply Section, Division of Transport Personnel, Office of Defense Transportation, Washington, D. C. There are now approximately 200,000 . other women are also substituting: for women employed in all- branches of do men. Increasingly women are being em mestic transportation--rail, water, air, ployed to perform mechanical and elec motor; street .car and pipeline. Though trical work in railroad shops, in th.e .this number represents only about 8 per hangars of commercial airlines and in cent of the total employment. In. the trans-. automotive repair and maintenance shops. portation field* it means that the dumber Some are telegraphers and telephones; of women engaged in this industry, .which a few are despaitchers on railroads. Others has always been strictly a man's indus receive and send teletype messages, plot try*. has doubled within a period of two weather maps, or guide airplanes on to the years. More than that it means that landing fields. Still another considerable half as many, women again, and 100,000 is group of women do inspection and instru a conservative estimate, must be added ment repair work requiring fine meaaure- to transportation's labor force within the . ments and a high degree of accuracy. next year, if the necessity war services Among these and a host of other!jobs are to be adequately maintained. which I have not\ specified arc- manyl in Without farther words or figures it be volving responsibility for the. lives of their comes obvious to you who are so well' fellow workers and the lives of the public, acquainted with industrial techniques and to say nothing of their own. J pfobtems, that such an influx of relatively inexperienced employees into a group of highly skilled industries-rindustries in volving the safety of millions of human beings--must cause considerable disloca tion. If transportation had .to absorb 200/100 green men within a short period of peace time, it. would be considered a big job. What are these pioneer women in.trans Now what is the impact of women transportation _ workers upon accidents? Does experience substantiate the com mon belief that women as a group are poor drivers and that in almost every occupation they-are accident-prone? j I regret that I am unable to give you any Conclusive figures that ,will settle this matter of women and.' accidents for ever. Neither in Great Britain .nojr the portation doing, you will want 'to know. United States is there, to my knowledge, Most of you have seen - them, white or any statistical material that answers the colored,. driving city buses, taxi cabs, question either.way! For one thing women- street cars and 'delivery tracks; selling haye been employed for too short ai time railway, airway and .bus tickets; checking 'in most of the hazardons jobs to warrant parcels; loading. airplanes; working oa definite conclusions, and for another, both. railroad tracks;. deahing passenger star, . the statisticians and-the employers! seem turns and coaches; washing aud servicing to shy away from this moot subject What trucks; even serving in' dining cars. Be can be said about women , and accidents hind thescenes in the offices of railways, mush therefore, claim no more authen airways, intercity bus lines, motor truck ticity than general impressions and spe and local transit companies thousands of . cific instances. ' 14 32nd Natumcd Safety Congress,.1943 First, what, do we know concerning the transportation companies of the United accidents of women workers in Great ' States than of Great-Britain. Women are Britain, a country where a larger pro more, largely employed as bus and street portion -of women has worked longer in car operators here, however. This differ industry than in the United States? Ac ence may perhaps account for' what ap cording to the annual report of the Chief pears to.be an opposite impression op the Inspector of Factories for. 1941, report- part of employers in the tvro countries able accidents (fatal and non-fatal) to concerning the liability of woitpen to acci adult male workers had increased 42 per dents. When I ask local transit com cent in 1941 over 1938 while it had in panies in the United States about the creased 192 per cent for adult female accidents of their women operators, I am workers. This staggering increase in the told, almost without exception that they percentage of accidents to women is are certainly as" free from accidents as mainly attributed, however, to the large the men drivers, and sometimes I gather increase in factory employment due to that they are a little better on this score. war and to a marked increase in the num They drive more slowly and more cau ber of women employed in dangerous tiously, at least at first, and . they have occupations and in dangerous industries. an unusually keen sense of responsibility Since the hours worked by the injured with regard to human: dife. OF course, persons in these years are not known, the there is stilt the question as to whether frequency rate is not given. Consequently or not this will continue when they be these figures do not tell us much. The come seasoned drivers, or when it becomes available figures in the report do show, necessary to let down on qualification however, that if all the accidents were standards for women operators.. equally shared, one adult man in- 25 would be liable to an accident each year at the 1938 rate and one in 20 at the 1941 .rate, while the rate for women in 1938 would be one in 105 and in 1941 one in 56. That sounds more encouraging for the women. Moreover, figures showing the percentage increase in accidents to women for a few specified industries notorious as "accident producers/' add weight to the conclusion that the overall figure is h'eavily influ* enced by the fact that women are partici* pating in a much-larger number of the dangerous processes in industry. At any- rate, the written testimony of persons having first-hand experience with women motor vehicle Operators tends to . substantiate the general impression that so far the women have measured .up to previous safety standards. The director of. motor vehicle safety for one insurance company'says, for example, in a recent issue of the Commercial Car Journal: "As to women drivers, they ap parently are .fully as safe and reliable as men drivers, at least for the operation of light equipment One oyer-the-road opera tor in California has been using women Specifically with regard to the acci drivers on a long hair! and has found dents of women in transportation^, I can them to be most leffideht and they are . only state that, my general impression maintaining much better time schedules from visiting a number of companies in with lower operating costs." the different branches of transportation . in Great Britain during 1942 and 1943, and interviewing the sripervsors of women Another writer in the Journal of Amer ican Insurance for June, 1942, reports that women give no' evidence of being more.' workers, was that the actual facts failed accident-prone than men, though they are to warrant the statement which I fre quently heard: "women have a lot of accidents." When chapter and verse * were called for, it usually turned out that the accidents cited amounted to. nothing worse than a bruise or a cut or other relatively minor injury.' - more susceptible to the.iollowing types of accidents:. (1) catching hair, clothing. jewelry, etc., in moving machinery; (2) falling; (3) cuts and bruises. These acci dents are obviously due in- most cases to failure to wear suitable work clothing or to inexperience at work. As a group, . Up to the present, a proportionately this writer says, women tend to be less. . smaller number of womejti seems to have reckless than men and their safety record been employed for mechanical work by is good. err ve! livwi - sal pri dri tb< pa: Tl cei tin thi Ar sin $S of' ant lig the pn of or tar enf vis tra a-1 avs bui dri dei is; but wo Th tan On cat gei ser opi gar act wo bet Wl doi eff< dec Street and Highway Traffic Section 15 The assistant manager of a company in the face without any attempt to cbm- employing 12S women as drivers of Army pare the record of the two sexes oir. to vehicles from the factory to points of de exculpate one. sex or the other, it is livery states that, his safety experience dear that there are certain factors which with women drivers has been especially tend to produce accidents on the part, satisfactory. Over a three-month period of women workers. Most of these arise prior - to December, .1942, th<r women out of the fact that women are' inexperi drivers, while delivering 33J-5 per cent of enced workers. Any new worker, whether the military vehicles handled by the com a man or a woman, is subject to these pany, lad only 8 per cent of the accidents. same accident-producing factors, and they The men drivers, who delivered 66?3 per can be overcome for the most part by cent of the -vehicles, had 92 per cent of adequate training for the job coupled with the accidents. During the first 5 months careful safety instruction. It should be these women delivered-2200 units for .the remembered in this connection, however, Army, but they were not involved in a that there can be danger, in over empha . single accident necessitating more' than sizing accident hazards. Perhaps even $50 in repairs. more than men, women are contra-sug Similar testimony is given by the Chief of the sales operating division of still another company using 700 drivers of tight delivery trucks. He' testifies that thouglywomen have a somewhat larger proportion of accidents than men, most of them result in nothing worse than dents or scratches' due to failure to judge dis tances correctly when backing of when entering and leaving, garages. The consensus of opinion among super visors of women bus drivers in local transit appears to be that women are as a rule safer drivers than the men now available for employment One intercity bus. company employing 300 women . drivers on short runs finds that the acci dent frequency rate of women bus drivers is 20 per cent in excess of that for men, but the accident severity record of the women is better than that for men drivers. The women are inclined to misjudge dis tances when backing and making turns. One the other hand, they exercise greater caution at intersections and other dan gerous places along the road, where the serious accidents usually occur. gestible, and it is possible--in fact it has happened in Great Britain andelsewhere --that too much emphasis upon what not to do causes an accident-shy person to do that vary thing with unexpected and sometimes tragic results. There is the further fact that a great many women, indeed most of those who will be employed from now on, perform two jobs--one job as home-maker and another as bread winner, which means that they are .frequently weary or their minds are pre-occupied when they begin work, especially if they are married. None of these problems are impossible of solu-. tion, however; not even the last one, as our brief experience with women in trans portation so far indicates. The likelihood of accidents involving women can be further curtailed, first, by recognizing that women, like men, are in dividuals, each -with her different apti tudes so that a suitable selection oil the. right woman lor the right job can be made; and second by teaching new em ployees about.the. necessity for wearing suitable work clothing, about the impor tance of cultivating a confident and ...Though there is some difference, of leisurely attitude, towards their job; and opinion and no conclusive evidence re about the. advantages of taking special garding the relation between.-women and pains to overcome inherent weaknesses. accidents, I think we can fairly say that If, in addition, the hours of women women in transportation have done much better in this matter than was expected. workers are kept as .near to 8 per cent as possible with short rest periods where that When human life is at. stake, however, - can be arranged, or. if they^are employed doing better, is- not good enough! An on a part-time or. a split trick basis, in -effort.must he made to eliminate all acci order to reduce, fatigue; if- the driving* dent hazards'. seats in-motor vehicles are so placed that . When we look the problem squarely no undue strain upon the body is Involved; .` . ' .V : t: /I - u iV,1 t:` `I V: -i f... .it;! 16 32nd National Safety Congress, 1943 if seats are provided in workshops as re help women', to help the'' Uiuted. States quired under,most state laws; u women . meet. its. present', emergency, there is no bos drivers are given day-time runs when-' reason that I'cahrsee why bcththe acci1 ever possible; if provision is made for a dent frequency and the accident severity hot meal in the middle^of the ' day; and rate forewomen should hot d<icline.' Tak if every opportunity is token by manage ing all the' good, points. of, women into ment to build up the confidence of women account,'''they ought even drop af little workers in themselves--if these simple lower than either i&te yet hats ..stood for and., ordinary human steps are token to men. -I' WEDNESDAY MORNING SESSION , October 6, 1943 General Subject Session on Employee Transportation Problems of Industry : . i ' (This meeting is reported under.Subject Sessions in Volume. I of the 1943 Congress Transactions)' WEDNESDAY MORNING SESSION October 6, 1943 Group Session for City and State Police Cooperation of Police With Plant Protection Organizations By p. J. DORR General Superintendent of Plant Protection, Made Manufacturing. Corporation, Allentown, Pa. Although actively engaged in the manu rials, thus overlooking the . many direc-* facture of vital war materials, .thousands tives emanating from Washington calling of small plants .throughout the country . for the expenditure of v^st sums of money . have been unable to meet War Depart towards the guarding of the responsible ment demands in providing - adequate facilities and their product police protection for those materials'or the plant and property that produce them; consequently we must look to some out side agency that is ready and available to assist us whenever an emergency should arise. , Surveys of our jplanfs by the various government agencies, inicludinig the F.B.I., were made fn accordance with a well de-: veloped and coordinate! plan, and the many suggestions andj recommendations offered by these agencies were made in At first glance this seems simple. Most industries are heavy taxpayers, with man agement plaiting an important- role in civic and local governmental affairs. But because,of the-present emergency and the ever increasing demands for weapons of war, management Is prone to put forth good faith and with ithe understanding .that big and small industry ilrould, wher ever possible, abide byj them. But again we are faced with small industry which wanted- to do a good job but did not have the finances nor the personnelsto pnt it across... an all-out effort to produce these mate - Just how should we go about to secure f hea Iocs mai is i the end son rial red imi 1 Urn for par em be plo av the gb fur FJ rec eve em vet the 1 Ch p sui the eri ert .1 me sw thi nu as Street and Highway. Traffic Section ; 17 outside help- in. setting up a protection the outside and for information about group, within .our property and still stay those working on the. inside.' Liquor within certain budget limitations? First, joints, taverns, and so-called . "danger we must bear in mind that big industry, spots" are the frequent hangout for those - employing thousands of men and women, seeking information, and many, a clever are sufficient unto themselves, and natu enemy agent cloaks his `movements be rally were fully prepared to meet this. hind the guise of a good fellow, well-met. . emergency and the many hazards that The copper on the beat knows his people. accompanied it'with a well trained, and. Cultivate him, gain his confidence, and disciplined force of men commonly re above all, share that confidence with him' ferred to as "plant guards." alone.. Therefore, for the. moment let us con centrate on Small Industry. Watch the "Joints" Gambling joints and bawdy houses pro Get Police Veteran vide excellent rest havens for the weary . First of all it might be good policy to worker, and through him valuable infor head this, small group with a"man having mation often leaks out into the waiting local police background--one that has . hands of the enemy. Inquiry should be many contacts in the police profession and made continually through the owners of is well thought of by all. and sundry , in these places in. order to determine if any the community.' If no. one'is. available, ' of their patrons have attempted to secure, endeavor to secure a leave of absence for information of a confidential nature from someone, from the City or Borough offi plant employees. Rate of production, type cials, and at the same, time ask for the of material manufactured, and many other redoubling of police protection in the pertinent facts, can be secured from men immediate vicinity of the plant that have imbibed too freely. Now as never before, countless oppor tunities are continually presented, calling .for full cooperation between police de partments and plant protection units. All Loiterers either on foot or in cars, who, without any apparent' reason, are seen in . the vicinity of the. plant; should be turned over to. the police for questioning. / employees working in war industries must Turn over all information on sabotage - be finger-printed as a prerequisite to em- or suspected espionage to the F.BJ. At ployment This affords an -excellent no time should there be an attemp t to avenue for .cooperation' on the part of. investigate or 'evaluate that, type of ac the local or state police, who will be tivity. This is a job for specially trained glad to assign a man to teach the simple officers who operate officially under the fundamentals of - finger-printing; The President's Proclamation. - FJB.L likewise will classify and file this Because'of the limitation of authority record, where it is always available in the vested in most plant guards,.it is advis - event of further investigation. A regular able that in the event of riot; mob-vio employee can handle; the' printing, and lence, destruction, of property; ..and. -the very good results can be obtained without blocking of gates and traffic, yon .have a the installation of expensive equipment - prearranged agreement with the local chief It is vitally essential that the local for him to dispatch men on call, and; thus Chief of both police and fire departments, confine the guards to the area inside the particularly in the larger cities, be con property. sulted and taken- into the confidence of the company.' Frequent discussions cov- ering plant problems on and off the prop erty should be encouraged. Seek out .the help of a* seasoned police man to survey your traffic problems. A. poor system wastes`many valuable man hours and leads to ^satisfaction, and in In the absence of police'power for your many instances 'injury, ' to' the 'plant men, or until such time as they can be worker. Rules and <"regulations as. pre sworn in as auxiliary military police by scribed- by the department; and -enforced the Governor, ask the local authorities for. later by the plant guard,. will halve a more frequent and. extended beat cover tendency, to speed up production, 'make age. Look to them for protection from for. a more efficient handling of traffic,- and 32nd National Safety Congress, 1943 eliminate the possibility of street and high disorder, attempts to photograph the way accidents. property, or anything of a suspicious sal nature. They too will be glad to assist his Neighbors Can Help in keeping the plants in operation. bal Bring the Chief of Police and Fire Chief into your plants, show them the vital spots and hazardous areas, and above all, be sure that they are familiar with all en Fire brigades, air raid squadrons, first aid groups, all can be trained within your plant if proper contacts are maintained with your local and state police. pr< 1 ide tO| Si *l- trances and exits. State police, sheriffs and their deputies, air raid, and civil de fense personnel, are all good contacts to have in the event of disaster. One or two state police units to my personal knowl edge are cooperating in this respect. The neighbors can be brought into this picture. Have them report any signs of Police are ever mindful of their obli gation and duty toward the protection of plants and personnel in their area, and at no time should the question of authority or jurisdiction interfere with our one pur pose, and that is--safeguarding lives and property during these thost troublesome times. ag saj me fai off jui y to wc of in Vi' Building Support lor the War Traffic Program By BSTEL HACK in) Manager, Louisville Safety Council, Louisville, Ky. pn r5: if There never was a period in the history right out and commits the same violation oil |v of this country when safe transportation over again. wi 5" k }! 8*. meant so much to every American as it has since our nation became involved in the present world conflict 'Building support for the war traffic pro gram is little different from building sup port for the peace time program, except We are in vital need of a renewed conr sdoiisness of the seriousness of the traffic accident problem. The terrific death and injury toil must be bunted deep in the minds of all our citizens. it's dii res th> es fa* dl that during times like these it is consider Leadership Needed to ably more difficult We often hear officials say that the tic Since Pearl Harbor, we have been sold, traffic problem is a community respon and rightfully so, on the idea that winning sibility. They reason, the citizens make re S i' the war is our first job. We have not been convinced that the best ways for all of us to help in the war. effort' are first, to walk and drive safely ourselves, and secondly, the problem, therefore, the citizens must solve it. I don't agree with that reason-' ing. Our citizens are not traffic experts. They don't have possession of our traffic sq *! to fully support our traffic safety-program. records; consequently, (they must `have One of the principal reason's the traffic leadership. It is'my. opinion that the problem has not been solved with a greater leadership should be furnished by the top degree of efficiency is that the problem of official with the , full cooperation of the crime has been made paramount in the local safety council. minds of most of our public officials, police officials, judges, and jurors, while accident prevention has been relegated to a less important place. I say it is theLtop official's first respon sibility because he alone cam select a safety-minded Director of Safety, Chief of Police, and Traffic Judge,, and has the In some cities, for example, there has power to demand of these officials effi been no change in the amount of fines cient performance of (their respective for major traffic violations during the war duties. When the top official has assumed emergency.' It is obvious that small fines his responsibility and hias. appointed the in these days of big money mean little right people to these key official posi to the violator. He pays the pittance, goes tions, then it is the dhty of the local Street and Highway Traffic Section 19 safety council to fully cooperate with his administration in coordinating a well balanced community-wide traffic safety program. I can hear you say: "That's a splendid idea but how are we going to sell these top officials on their responsibility?" I'll agree that it isn't an easy task, but I say to you it must be done. I'm sure most of you will agree with me that our failure to secure the full cooperation of top officials has resulted in the death and in jury of thousands of our citizens each year. Unless we find a satisfactory way to enlist the full support of these officials, we'll go right on slaughtering multitudes of men, women, and children every year in spite of all our efforts. Go to Top Official Now, there may be many ways of solv ing this vital problem, such, as public pressure groups, unfavorable publicity or, if you wish, an application of political ointment. However, I am not in accord' with any of these methods/ My idea, and it's predicated on experience, is to appeal directly to the official and submit to him records which prove very definitely that the traffic accident problem is the great est individual, social, and police problem faring the community. The safety coun cil. is vitally concerned and most anxious, to cooperate with him and his administra tion in doing more about it. Emphasize to the official that the first responsibility for a safe community rests squarely on his shoulders, and that no other organization or individual can do the job successfully without his support; that the citizens are looking to him for leadership and the solution of all of their civic problems; that the officials under his supervision will not do a safety job unless he assumes the leadership ancl re sponsibility. ' The next step would "be to offer the official the suggestion that he call to gether a small group of his advisors and plan the safety' program to be followed, which obviously will be built around the three E's, Engineering, Education, and Enforcement. Once this procedure has been followed and the top official's full cooperation obtained, then the. officials and safety council together can sell the program to the community. Then, and only then, can we hope to accomplish the desired results in traffic accident prevention, and this holds true whether it be in peacetime or wartime. Therefore, my recommendation to every person in this audience1 is that if you really want to build support for the war traffic program, and you do not have .the full cooperation of the top official in your community, then get together the right group of people, call on your top official and follow through with the procedure we have outlined. If you are'successful in this task it will be the greatest indmdual step you could possibly take toward build ing genuine support for the war traffic program. / I l 20 32nd National Safety Congress, 1943 j Military Violators of Traffic Regulations By MAJ. MARTIN F. OEHMKE . Judge Advocate General's Dept, 6th Service Command, Chicago The War Department you no doubt be the actual or alleged cause of a viola- realize has great numbers of motor ve tion. hicles, to carry the enormous commerce of a]] Drivers Trained the war, which traverse all sections of the Prospective drivers are all subjected to country, and the maintenance and opera prescribed courses of training before they tion of which requires unceasing vigitancc, are allowed to operate jmotoir vehicles. A planning, effort and cooperation to the condition precedent to (the training is the end of a minimum loss of or damage to completion of a driver's aptitude test persons and property. Traffic laws and which includes inquiry as Jargeneral intel regulations of all the states and their mu ligence and capacity withjpairticinar refer nicipalities are understood and regarded ence to vision. The training covers the as a means to that end and cooperation whole field of operation and suih mainte with all enforcement officers and agencies nance as does not require a mechanic. The' is a settled policy of the War Department. end of the course should find the driver Quite naturally, therefore, the respon qualified as to. mechanical knowledge, sible officers of the Army are at all times operation, which includes actual driving interested in the "Wartime Aspects of and handling under usual traffic conditions Traffic." For the moment, my own. arid knowledge of traffic regulations, road thought concerns the handling of military violators of traffic regulations. Military violators usually fall into two classes: those who transgress through in tention or negligence, and those who offend through ignorance. The Army, ever confronted with the problem of discipline, applies the theory of prevention in an effort to provide itself with motor vehicle operators who will not be traffic - law violators. This application is made by proper operation and maintenance of equipment and careful selection and train ing of prospective drivers.'' Commanding officers are enjoined by Army regulation, which has the force of law so far as be is concerned, to prevent improper use of vehicles which results in abuse. In the term abuse are included excessive speeds, improper 'use of controls, including gears and brakes, racing engine, over or im proper loading, lack of or improper use of lubricants, lack of inspection, deferred procedure, safety precautions, speed limits, and vehicle abase. If lte is so qualified, he will be provided with!the Army's Motor Vehicle Operator's Permit, which, the-ap propriate regulation provides, will be a guarantee that the indhnduail'is a qualified driver. Such specialized training under Army discipline designated, to inculcate respect for all law and order should pro duce a driver who will avoid infractions of traffic regulations. * Nevertheless, there are military drivers who do sometimes become traffic law violators. The Army don not distinguish such a driver from any other violator of military law and accordingly he may be punished by military; authority and tri bunals for such offenses as hie may commit ~ under applicable Articles of War. So he may be punished if he|misuses, or wilfully, or throngli neglect, suffers any military property of the United States to be lost, or damaged, or wrongfully disposed of, maintenance, and accidents. Such abuse and is required to malce.good the loss: when due to carelessness or indifference of As already indicated, be..will have been responsible personnel is considered cause instructed as to the proper Operation of for disciplinary action. Observe that im his vehicle with regard to. observance of proper or insufficient maintenance result all traffic regulations; and if he. hub to ing in defective equipment cannotreadHy obey such instructions; he may he punished be made' an excuse for a law violation, and accordingly. For any! other offenses he that not only the driver of a vehicle but may commit in and Jabont the handling his supervising officer may be held respon - and disposition of the vehicle entrusted sible for defective equipment which may to him he will be `subject to military i discipline tried by casewbi cause thi The f< is respoi well .as trusted t a plea military tary dr liquor oi committ though i turn of i element here tha ished fo under si credit uj so in ca not hav driving. Army w dividual to the n Most Presidin Reti Some method tration. public r in gene in Abu onrnati gets. *".*?*<%*'US' .** w-v .. i>.*- ' - *. t : vmi Street and Highway Traffic Section 21 discipline. This means that. he. may . be. ciplinary action against military violators tried by court. martialfor bomicide.in a of traffic laws does not prevent the prose case where he operates his vehicle so as to cution of these offenders by anvil authori . cause the death of any person. ` ties. The War Department expects all its drivers to observe all traffic laws, and 'ex . Drunkenness No Excuse cept in unUsnal cases.'where military The foregoing suggests that the driver is responsible for bis personal conduct as well .as his conduct with any vehicle en trusted to him. This he cannot escape by a plea of drunkenness. It is a rule of military as well as civil law that volun tary drunkenness, whether caused by liquor or drugs, is not an excuse for crime committed while in that .condition, al though it may be considered on the ques tion of intent, where intent is a necessary element of the offense. It may be noted here that military personnel 'xnay be pun ished for being drunk oh duty, or drunk under such, circumstances as to bring dis credit upon the military service, and this is so in case of a drunken driver who . may not have violated any traffic laws while driving. It-is obvious, of course* that the Army would-not knowingly permit an in dividual, to be a driver if he is addicted to the-use.of alcohol or'drugs. ' necessity or expediency dictates otherwise, . it will not interfere with .such prosecutions. - On the contrary, it may safely be assttined that military authorities will at-all times cooperate: with' civil authorities to their, general and mutual objective of the elimi nation of motor vehicle accidents involv ing military personnel,, whether such lied- dents are due to law violations or other causes. -f. As a matter of cooperation, the War Department, has bad and now has agree- - ments with the states of Illinois, Wiscon sin, and Michigan, comprising the Sixth Service Command, for the handling cjf all traffic problems which are of common in terest including, of course, the handling of military violators. The purpose of these agreements is to unify the efforts of all the authorities for the sake of safety, in traffic; You may be assured that the.War Department and its responsible officer! per sonnel will adhere to and uphold isuch ' Most of yob know that Army dis worthy purpose. j .. .. WEDNESDAY MORNING SESSION* October 6, 1943 General Session for Traffic Court judges and Prosecutors Presiding: Judge Harry H. Poster, Chief Justice, Evanston Municipal Court, Evanston,' M. The Traffic Court Itaogxam of the American Bar 1 Association, Iimior Bar Conference By JOSEPH D. CALHOUN Bearing National Chairman, Junior Bar Conference* American Bar Asebdatipn, .. Hedfr.1*. ... Some of us have a primary concern over - While the external dangers are jtoday methods. of highway and; traffic adminis- uppermost in our minds, we must r<imem- tratfon. Some of us wprry more about . - her that our ability to save oiirsehhs de public retard for the enforcement of laws pends largely on the condition cuf our in general. Att of us are ritany.interested,, household, aid the importance of Victory in American Welfare--$he protectkmof in World War Il wfll be minimized If otpr nation from external' and,internal dan- - American Democracy does not strengthen gers.' ' . itself in the confidence of its citizeni;. The rj i '* M, I -- !:. .- i <  !- 22 32nd National Safety Congress; 1943 judicial and law enforcement systems must sectional meetings devoted exclusively to have public confidence, and in-order to consideration'.of traffic Courts and related assure the retention or the regaining of enforcement problems,..' have been held that confidence, those systems must be under the auspices of me National-Safety strengthened and improved.! Council. Most effective [of these meetings _ Education Necessary have been some sectional meetings with State Bar Associations^ wheire programs And so, you who have been traveling were devoted to consideration of prob with the importance of national safety, lems facing judges and prosecutors in. the and we of the organized bar who befriend handling of . traffic violator!, especially the administration of justice, find oar under wartime conditions. paths intersecting at a peculiarly danger- . j qus~ time-in -the ^history of our eouobji- -.Survey Undertaken, and Bccnmmmdariom The young lawyers of America, as or 1/Ta.fo {" ganized in- -the Junior Bar Section of the A survey was undertaken under the American Bar Association, have mobilized auspices of the . National Committee on the resources of our organization in an Traffic -Law Enforcement, which resulted . effort to do something about .this , larking in* the publication of 'George Warren's danger of America's household. We be book on "Traffic Courts." This bode is lieve that in order to have national safety, the fourth volume in the Judicial Adminis we must have not only education on tration series published by the National safety, but we must have enforcement of ' Conference, of Judicial Councils, of which the law relating to the violation of the series Dean Roscoe Pound it the editor. rules of safety, and we can't have law en George Warren, in his booth lists fifty- forcement without an effective, intelligent seven recommendations necessary to the and comprehending judiciary. improvement of traffic.' courts generally. We, as young lawyers, see in the faulty These recommendations have been ap administration of the traffic courts, a proved by four national group* within source of weakness which leads to lack the American Bar Association, namely: of public confidence in the judicial sys the Section of, the Junior Bar Conference, tem, and a great defect in any program which I represent today, the Section on for law enforcement and national safety. Judicial Administration, the Section'.on- While the traffic laws are enforced in what is known as th? inferior courts, there should be no inferior justice. The first court,-and very probably the only court in which most American citizens first find themselves, is the traffic court. Approxi mately five or six million citizens each Criminal Law, and-the House of Dele gates. Also, this list has been approved by the International Association of Chiefs of Police, the National Conference of Judicial Councils, and your Committee of Traffic Judges and Prosecutors of the National-Safety Council. ,, year come into, contact with traffic courts, The fifty-seven recommendations may many of them juveniles and many of for be grouped in three genoal classifications: eign birth. The impression they receive first; , basic changes in traffic court set-up is an important one, and generally an i and functioning, requiring state legisla unpleasant one. Most lawyers have noth tion and, in some places. Constitutional ing to do with traffic courts, and the dis Amendments; second, changes which can respect which is bred by-these experiences bp effected without legislation by some is, in my mind, one of the dangers I re administrative authority, such as the City ferred to in America's household. Council; third, changes, in procedure, the ' You, of the Committee on Traffic Courts equipment and physical appearance of of. the National Safety Council, have seen court rooms,, which can be placed into the problem also, for' some time, and effect by the individual judge of the traffic particularly those of you who are: judges court. have become more and more traffic minded Opportune Thncj'for Action, in the bust few years'. National and regional i The safety considerations of the pro- safety conventions, as well as regional and gram are well known to you. The peace Street and Highway Traffic Section time situation-of alarming death and injury judiciary and the law,enforcement authori rates occasiqnedin motor vehicle acci ties. It has been our experience that they dents originaDybrougbt about the study. welcome our help and the advice wltich I.-...: \ Traffic enginers and safety engineers bad cranes from a nationally organized, effort: progressed to. that point. in their' work Through the cooperation Of:, the Ra where ft became necessary for them to en tional-Safety Council, a grant' was obtained list.' the. cooperation of Bar Associations, from the War Production Fund, wltich judges and prosecutors, in improving the enabled ihe junior Bar Conference to im type of enforcement of traffic regulations plement and apply the program as' ting-, found in traffic courts.. gested in the fifty-seven recommendations Now, the peace time problem has be- of Mr. Warren's book. XU ,,come, more aggravated .nnder war time J* As-Ouurman: of .the rjunior -Bar- Cion- - conditions, and despite gas rationing, the ference, I appointed a Traffic Court Com rubber shortage and reduced.speed limits, mittee, which has become a standing cran- the percentage of decrease in automobile mittee of our organization, and which has accidents has not been-as great as the done a great job in .establishing a founda reduction of automobile travel. It is true tion for future efforts in regard to <the that thedockets of the' traffic courts have national safety program through the Bar greatly decreased, but what better time Associations of the United States; , could there be than now when the court can place in effect, and, if necessary, James Economos, of Chicago, during experiment with the more substantial re the past year, served as full time secre forms contemplated by our program? Fur tary of that committee, and all of us were thermore, the time is here for anticipa delighted when Mr. Economos was elected tion of the post war problems that will the new. Chairman of the Junior Bar Con come with the reconversion of the auto ference for we know that he will continue mobile industry to the manufacture of automobiles. his interest and efforts for improvement of the traffic courts; ( j, (' : -I We can properly contemplate the post Intensive Campaign Carried On j . war problems relating to national, safety, Although the-manpower of the Junior but .die war is not yet. won and every Bar Conference has been strained by! the . )/:: ; ' -V. t..- ' automobile accident today in which a war. demands of military and civilian service worker is injured means, man hours lost incident to the war effort, we have, during from the war effort; In addition, we are the your, carried on an intensive pro faced with a vital national transportation motion campaign through field contacts problem. The automobile is a necessity. with the local bar units, and a ntunbeir of Farts are scarce. Every accident means a local Bar Associations have established unit of transportation lost. The Brookings Traffic Court Committees. Mr. Economos Institute has published a report which in has traveled considerably throughout! the dicates,a minimum requirement of twenty United States and on one occasion heand million automobiles, trucks, buses and I covered ten of the southeastern states, other motor vehicles for a successful speaking before the local bar group,* in prosecution of the war effort Today there those states. i arc oaly approximately twenty-four mil Recently a very successful regional lion vehicles in .operation, which number meeting was held in the west coast, par is rapidly decreasing to. the essential mini ticipated in by the leaders oI the bar in mum of twenty million. that area, - the primary purpose of : our Cooperation of All Agendea efforts this year bring to educate the {law yer in the. importance of bis interest land - The concentration of . war .workers in concern over the problem. After all, the already.crowded traffic areas and the prob legislatures, the rity administrations, and. lem of war .wbrker and military violator certainly the courts are largely controlled of traffic laws have raised Smite difficulties . by the thinking of the lawyer members, 0-. to be solved, and they can only be solved and we have felt that if we can have1 the se. by' the intelligent approach of the local local leaders of the bar aroused over; the & local traffic court situation, we would then have the door open to Improvement and further progress. We have, found that the local traffic court judges have welcomed suggestions, and in fact, most of them have been keenly interested, in whatsis being done throughout the country in rela tion to their particular problem. From Nashua, New Hampshire, to Houston, Texas, the Junior Bar effort for the im provement of the traffic court has had a very real and concrete effect We have been able to get the young lawyers, not only in those areas but in other areas of the United States, to go' into the traffic courts, to compare their local jjourt with the more or less ideal court as recom mended by George Warren, and to gain the sympathetic ear of the local judge and prosecutor. These ambassadors of traffic court re form have laid a foundation of good, will upon which we must continue to build-in. the future, if we are to make progress in this work. We have started the ball roll ing, and the judges* thininhg on this sub ject to the ultimate improvement of public respect for law, and to a real law en forcement program. Yon, as prosecutors and. judges of traf fic courts, as well as we younger members of the bar, hold the future solution to this great problem in bur hands. Your concern is bur concern,-and in the days of peace; which we hope will soon come, we who continue our efforts in tins regard trill certainly find our reward in moused and intelligent public cooperation. Some Important Recommendations of the "George Warren" Report By JAMBS P. ECONOMOS Secretary, Traffic Coart Committee; Junior Bar Conference, American Bar Association, Chicago You have been informed today that the 57 recommendations of the "George War ren" report can be divided into three main groups. It is advisable to repeat these general divisions, which are: (1) Basic changes in the traffic court set-up and functioning which require state legisla tion or constitutional amendments; (2) Basic changes which can be effected with out legislative authority but. require ac tion only. by a city council, county board, or state agency; an^, (3) Basic changes in procedure, equipment and physical ap pearance- of courtrooms, which require action only by the judge. In- addition, your attention is directed to the wartime court problems that arise out of violations of traffic laws committed, by war workers and members of the armed forces. These are not touched upon in Warren's report and they developed after its completion. Fortunately, military violators have been fairly well taken care of by procedures developed by the'aril and military police and-naval shore.patroL This is not true of war workers, but the various panels and discussions at these sessions will deal further with the prop osition of working out procedures to com bat this problem. Any attempt to pick out the.most im portant recommendation would be futile because the selection must depend on the approach used in determining importance. One group, would attach considerable im portance to one recommendation while another would not consider- it vital cto their program. My selection of recom mendations for discussion today is guided by the preponderance of judges attending the sessions. The-judge, in one sense. Is directly concerned in all 57 recom mendations, nevertheless there are im provements which only he on put into effect. ! Need Higher Standards . Obviously, the most> important recom mendation we can consider is No. -36 which' reads: "There is a general need I ress up say, fon yon and you the con Street and. Highway Traffic Section 25 for higher standards of decorum and want to achieve higher standards, you courtroom procedure in traffic cases." must work-for them." There are many Ijer^ the judge is directly concerned. avenues open to you to make improve The definition of decorum is: "Propriety - ments here. of manner- or conduct; dignity arising from suitableness of speech and behavior to one's own character, or to the place amT occasion; decency of conduct; seem* liness." a< Therefore what; the judge does, what he says; and: what he requires of the defendants, witnesses, court clerks, bail iffs and other personnel will greatly deter mine, the type of decorum that will pre vail. If a courtroom is opened promptly at the appointed time, if all preliminary work- required of the clerks is ready, if the'prosecutor assigned to this court is . prepared, then the judge can enter his courtroom from his chambers, wait until the formal pronouncement is made and then proceed with the business at hand. The clerk, or whoever does it, shall' call his cases in a dear loud voice. The path to the judge's bench shall be easily acces sible. : * The judge should ask, in a courteous manner, what kind of plea the defendant wishes to make .to the charge.' From that point until disposition of the case, there is nothing that is more important in that en tire courtroom than the trial of that case. Regardless of how minor the offense, the defendant must be made to feel that he is receiving the fairest and most impartial trial ever held in that court room or any other court room. The moment sentence is imposed, whether it be dismissal or punishment by fine or jail sentence or otherwise, that person should feel as if he Let us go back to the defendant. He is usually standing alone in strange stir- . roundings, apprehensive and self-consci ous, and confronted with the representa tives of the public, a uniformed police officer and a prosecuting attorney ready to present the evidence against him. To the court-and court attaches^ it may . be only one of q-hundred cases of that day; to. the individual at the bar of justice,; it is an ail important case,' which may halve a' bearing on his fate throughout his lifer Let your court function in such a manner that no one can ever accuse you .of high handed injustice; lack of courtesy, and irresponsibility. So far I've been talking about the judge's attitude, demeanor, and judicial presence. There is, however, another re quirement that is essential. That is -to require everyone in the courtroom to re main quiet; no unnecessary noise, no un necessary interruptions, no hangers-on, or bondsmen cluttering up the scene and no ' recesses to speak to'friends or others desir ing to' see you on business. This, too,, is dependent upon your attitude. You'do your job properly and the others will soon fall into line. It doesn't, take very long! to instill these qualities U you set the-ex ample. When you go back to your court room, take a mental yardstick with you to measure the standafrls you have set:'up in* your court If you. find deficiencies, then do something about them. had reixtved the highest consideration. In traffic cases this is doubly important be Courtroom Housekeeping cause of the safety and other educational Every artisan, every worker, every problems involved. practitioner of medicine, and every law Many Avenues Open yer, must have adequate tools and a suit able place where he can apply himself I know that this is an ideal, but prog- to his business, trade, or profession. He ress is never made unless ideals are set selects the best tools available and .the up for achievement. ' Some of you may best office, bench,, desk; or other place say, you can't conduct your court in that, to carry on his trade, business, or pro formal mdhner. Some-of you may say, fession The judge is not so fortunate .'be? your docket is. too heavy to be so patient cause he inherits the courtroom and.jthe and so courteous. Some of -you may say, chambers from his predecessor, iritis you have no control over the clerk or brings me to Recommendation NoL 6 the . prosecutor. let us grant that you are which reads: "Physical courtroom condi correct and Pll still say. to you, "If you tions should be improved as to facilities, r>.. 32nd National Safety Congress; 1943. arrangements,' cleanliness and appear All of the changes required to meet this ance." recommendation usually can be accom What problems arise when considering this proposition? Must we think of high ceilings, marble slabs, paneled walls, fancy woodwork, massive .lighting fixtures, stained windows, beautiful pictures, leather chairs, and other items of interior decoration? Is there any set architectural plished by a'persistent and insistent judge. Some of the 'judges bold court in rooms and under conditions j they, would., never tolerate in operating. itheir own lhw of fice. If you have a cash register in .your courtroom, you can surely silehce it, even if it isn't removed from the courtroom. rule for courtrooms? I do not know. I Location of Courtroom IR-: fc- % !; am certain we must leave the answers to the' interior decorator and the architect bnt we must instill them with our ob jectives. There is one thing all of ns .know and that is that all court rooms 'should be designed for impressiveness and be so impressive that all persons crossing their portals willautomatically doff their' hats, as in entering a church. Many of you will recall Arthur T. Van derbilt's foreword to Warren's book and the reference to courtrooms that smell. Why tolerate these ; conditions in the courtroom? The statement is made by George Warren that the motoring public is paying in fines andL taxes for an ade quate court system which it is not getting. The location of the courtroom is a The courtroom must be a temple of jus very serious problem. It should be located tice, not only in name but also in appear in the same building with the other coWts ance. The judge can't do much about and not be considered: a step-child of the the structural picture but he can call at judicial system. In Philadelphia, every tention to the lawyers, the citizens, and one -of the courts bu't the traffic court the city fathers about the conditions and - is housed in modern baildings. Yet the request action. The situation in Chicago's traffic court is in the oldest police building traffic courtroom was bad. Judge Gut- in town; at least it seems to be the old knecht and Judge Gorman called it to est This example can be repeated many the attention of Chief Justice Sheffler. tunes over in rids country. He then undertook to secure improve ments. Slowly but surely, improvements were made and Chicago will have one of the finest traffic courtrooms in the coun try. Many courts; trying traffic cases are known as police courts and housed in the police department building. As far as-the trial of traffic cases is concerned, this is usually not advantageous either to the The judge can do other important police or to the defendants; even though things. First, he can request that the it may be as to other criminal business, entire courtroom be clean from top-to as in drunk and disorderly, cases. Many bottom and that it remain clean all day times the traffic court is separated from long. If this means no smoking, then it the place where the cafeteria court or must be "No Smoking." if it means no violations bureau is operating. This is a chewing of tobacco, then there must be mistake, They should be in the same a: "No Chewing." He can insist that the , building. As a matter of fact, .wouldn't V' superintendent of maintenance have all the ideal be a "traffic safety bnildidg"?! approaches to the courtroom dean before Now you have a right to ask, "Can. this 5/ court opens every day. He can insist that be a solution to all our troubles?" Does a the clerk and bailiff also adhere to'this new, dean, properly arranged, and im rule. Second, the judge can rearrange or pressively designed courtroom automati ask for a rearrangement of the fadlities cally confer superior wisdom, impartial in 'the courtroom. This may mean pro ity, and fairness upon a member of tfie viding counsd tables, witness stands, jury judiciary?" Of course, the answer is, boxes, and a traffic board or table to ex "No!" Yon can even go farther and say pedite rite explanation of acridents by the most impressively arranged courtroom witnesses and parties. If the place pro cannot take away thejstigma of rank, in vided for the court cleric is wrong, change ' justice. However, other. things being it equal, you at least have set the stage ji* ; - L Street and Highway Traffic Section for the enactment of a scene in which suggestions for improvement in the po justice'is administered fairly and imparti lice department because you don't kriow ally with understanding and ability. enough about them. This simple experi Need Specialized Training' ence should lead you into greater re search. There are plenty of books that We have written the script which is' to Northwestern University Traffic Institute be acted ont in the -courtroom,and we and the International Association^ of have provided all the props necessary for Chiefs of Police have prepared to assist this dramatic presentation. Now we must you. The National Safety Council has find the actor who. will assume the lead many publications which will be useful ing role in this every-day drama dealing to you. with - the rights, liberties and privileges of a citizen. We could fill the'judge's part by calling upon any lawyer to as sume this role. However, we are not - satisfied with just any lawyer and we must call upon lawyers with special train ing. " ------ Then there is the person with the title, "traffic engineer." Your next visit should be to his office. Sit.down with him and ask him to explain the fundamental prin ciples governing him in bis work. The traffic engineer will be ready and trilling to give you a dear insight into this prob Therefore, we must be vigilant to lem. Do your utmost to understand these obtain a person who will qualify with the principles. conditions set up in Recommendation No. 14, which reads as follows: "Traffic judges should recognize the fact that a knowledge of traffic laws, traffic policing and engineering. is necessary in addition to a legal background and should aim to obtain an understanding of these factors." The first requirement of knowledge of .traffic laws is a simple one. Any lawyer can* read the traffic laws but what about . Next; find out what is being done by the safety council in your community. If there is no .safety council, there must be a safety committee of some organiza tion giving its attention to this problem. It may be the Parent-Teacher Associa tion. It may be the Chamber of Com- merce. But, whoever they are, be sure and contact them and find out what they are doing in their field. Yon will be en traffic policing and engineering and What lightened at the progress that is being the about safety education? This is the re made in these fields. quirement which separates the wheat from the chaff. After you have done all of this, then Today it is very simple for any judge to find- out what is being done* by the police. The same is true about engineer ing and the same'is true.about safety' education. All that any judge has to do is to step across the hall and into the police department Buttonhole the. chief of po lice and tell him you want to learn all about what his police, are doing in regard to handling traffic and the activities un dertaken in behalf of accident prevention. go back and read the ordinances of the City Council and state statutes pertaining to traffic laws. You cannot help but be impressed with the fact that the printed word has now taken on life and substance and become a living thing. You will not have this experience if the traffic laws are not based, wholly or substantially, upon the Uniform Motor Vehicle" Code and upon the Model. Traffic Ordinance. Here, again, you have another opportun ity to promote improvements . in the ad A Few. Days Study ministration of justice. .You ?will recall that Recommendations No. I and No. 2 A few days is all that is needed to get deal with the subject of traffic laws. If a fair realization of the different methods you fulfill the requirements of Recom add procedures used by the police in this mendation No. 14, you cannot help but field. Your interest in their work will be flattering to them. They will show you, with great pride, the entire set-up and ask for your suggestions for improvement Naturally, you will not be ready to make do your bit to support the recommenda tions designed to improve the traffic Ijaws. Your help in- this respect can do much toward improving respect for the laws themselves!, by assisting in the removal '..-I. r i' \ r l- 28 . 32nd National Safety Congress, 1943 of those laws which are unenforceable, One of the objectives'achieved.through unnecessary, and contain inherent defects. the promotion of regional conferences has Most Reach Other Judge* been the increased knowledge on the part of the judges attending these conference* It is unfortunate that the judges in the regarding additional training .and skill re audience are just the ones who do not quired in the trial of cases involving traffic need to listen to this kind of a discussion. violations. We must cbntinue this activity Many of those who are absent also have and plans are already being made for some appreciation for the additional train further regional , meetings. ing required to adequately try traffic I want to stress again that the Junior violation cases. However, there is a far Bar Conference believes, that the im greater number who have very little provement in the administration of traffic conception of their duty to society and to courts is one of the m'ost important prob the promotion of the public's welfare. lems requiring its attention. At its an These are the judges .we must reach. nual meeting here in August, the Junior These are the men-who must be instructed Bar Conference recommended that the in traffic engineering and traffic policing Section on Judicial Administration, an and safety education., . other component of jthe American "Bar Unfortunately there are too many part- Association, evidence jits further interest time judges in this country. They cannot in this-program by the appointment of serve two masters and efforts should be two new committees.! These committees made to consolidate the jobs so as to are a Committee on Traffic Courts and a obtain more full-time judges. A full-time Committee oh Justices of the Peace. U. S. judge will do something to understand his Circuit Court of Appeals Judge. One L job but a part-time judge hardly ever Phillips, chairman of this section, has takes the time. It Is one of the functions selected two state supreme court judges of your committee, just as it is the func- . to take the leadership of these committees. tion of the Traffic Court Committee of The balance of the personnel will be made the Junior Bar Conference, to spread, by up -of justices 'of the peace and traffic one means or another, the necessity for- court judges. ! this type of additional training. The main ideal behind this recommenda When the Traffic Court Committee of the Junior Bar Conference held its first meeting in Chicago last February, it was arranged that they would meet the leaders of the National Safety Council in Chicago; visit ' Northwestern University's Traffic Institute, and attend a session with judges of traffic courts, prosecutors .assigned to traffic courts, .military police representa tives, naval shore patrol representatives, traffic engineers, safety engineers, and others. These men pointed oiit the prob lems in their particular fields. Thereafter tion was the feeling that it vras about time that the appellate'court judges' and judges of courts of general j jurisdiction, recog nize the judges of the dviH and criminal courts-of first instance. It takes all of them to form the jddidal system. It is anticipated that; from! now on, a greater appreciation of the'problems confront ing each will be used to the mutual ad vantage of both groups. The day is rapidly approaching when every judge of a traffic court will be a lawyer or a legally-trained individual. the Committee arrived at the conclusion In closing, let me i assure you of one that schools or institutes should be con thing, that the campaign of the last yedr ducted for judges assigned to traffic to improve the administration of justice courts. Not much has been done directly in traffic courts - willt continue unabated about this suggestion. However, the pat and with renewed vigor this coming year. tern for future activity designed to pro In paraphrasing the {words of Chief of mote this conclusion has. gradually Staff Genera! George C. Marshall, we emerged from the many conversations say: "There must be jno lessening of the and discussions that Harvey Booth and momentum it has taken us ttwelve months I have had in the past year.. to develop."- Street and Highway Traffic Section 29 Panel Disctvsloii Presiding: Judge Chris. B. Fox, of the Oakland, California, Police Court was panel leader. Members of the panel toere: Judge J. J. Quhxin, Portland, Oregon; Judge A. L. Seng- stocK, Des Plaines, Illinois; Judge Joseph M. Wyatt, Baltimore, Maryland, and Judge Harry H. Porter, Evanston, Illinois. r Judge Fox stated that the panel would a. The common use of judicial robes dtflil with a few of the practical aspects will come in time- because it helps of the recommendations, and that each to dignify the judge and bring greater question should be discussed thoroughly respect for those present iti the from the floor. court. However, it wilt be necessary The first subject proposed by Judge Fox, aimed at making the court more for "higher courts" to adopt the pro cedure first impressive, was the use of an opening b. Wearing of a robe might make the ceremony in municipal and police courts. defendant feel less at home in court Judge Ouillin reported that in Portland the following ceremony is used to open traffic court: As the judgfr enters, the bailiff raps the gavel, declares the court to be hi session, announces the name of the judge, and all persons in the courtroom stand. This opening ceremony is of much value in lending dignity to the court. - and detract from the educational value of his appearance in court c. In one municipal court represented, ' the judge wears a judicial robe in jury cases only. Some large: cities require all municipal judges to wear robes. ' ' . The next question to the panel, was: "How can the staff be trained and directed to add to the dignity of the court?"! - FrOm the floor,'the following specific Judge Wyatt declared it should be the practices were reported: right of the judge to select his own staff a. Spectators in the courtroom rise and in order to have personal control over - salute the flag at the opening of the them. The judges of the Baltimore Traf court fic Court have this privilege, and the clerks b. Bailiff raps gavel, all stand, declares are specially trained. the court m session and gives the From the audience^ five'of the judges i . name of the judge presiding. - reported their court clerks were iunder c. In a court which has no bailiff, it was suggested that the cleric serve in his place in the opening ceremony. Upon a showing of hands, the majority of the judges indicated that they use an opening ceremony similar to that used in Portland. Judge Fox's next question concerned rite wearing of. a judicial robe. civil service. In most of the courts the control of clerical staff is not tooj good, since they usually receive their job through someone.else. "How to maintain decorum in the court room" was Judge Fox's fourth question to the panel and group. ,:! Judge Quillin declared it is most im portant for. the judge to pay full atten tion to the case being tried, and he must. ' judge Sengstock said he does not wear not permit anything to be done which one, but. believes, it would, help in im might distract his attention. He jstated pressing the defendant and others pres that quiet in the courtroom was a first ent in the courtroom with the seriousness, essential to a good trial. of the occasion. He would hesitate to wear a judicial, robe unless a precedent were set by the so-called "higher courts" which' he could follow. 0 In the discussion from the floor, the following"points were advanced: ~ a. It may be necessary at times for the judge to -he sharp in -reprimanding. The following suggestions were offered persons who are not. quiet in the from the floor: courtroom. ' -r 30 32nd National Safety Congress, 1943 s as b. The presence of a telephone in the courtroom hinders courtroom de corum. c. In some courts there is a continuous series of documents passed across the desk of the judge. Even if the 'judge can sign these and concentrate on the cases`being tried at the same time, it creates the impression that he is not paying attention to the case at hand. In courts where the judge must personally sign many docu ments, he might be able to set cer tain times for doing this, and if nec essary, adjourn court for a short time. One judge reported signing warrants in advance in order not to have to do it one by one. After discussion, Judge Fox called for a show of hands on several questions, which brought forth the following in formation: a. Only one judge has a telephone .in court It is on the clerk's desk in a court with a large volume of busi ness. b. None of the judges permit the wear ing of hats by men in the courtroom- c. One judge permits smoking in the courtroom. d. One judge permits irregular approach to the bench. e. No judge leaves the courtroom while a trial is in progress. f. No judges broadcast their court ses sions on the radio. c. In another city the arresting officers submit, written reports. ! Judge Fox stated that the physical fac tors are important in-any court, and re quested a discussion jof such matters as arrangement and appurtenances needed to maintain decorum in tIhe courtroom. Judge Sengstock declared the layout of the court room is important, and all -fac tors should be carefully studied from every, possible angle.;1 For example, the position of the judge is very important, and no one should/bej sitting on the same level as the judge.' In the discussion fiiom the floor/it was pointed out that gradual improvement is being made in courtroom arrangement and that this was making for more dig nified trials. Offsetting this, however, is the large volume of cases some: courts must handle, which makes the modern facilities and arrangements of little value. As an ex ample, several courts try cases with all those concerned standing in front of the bench. At least five courts represented stated that they have to use summary trials in order to get through. The an swer, of course, is Imore judges where the volume is so heavy that defendants cannot be properly tried. Judge Fox's last question was: "Should' there he a prosecutor present in the traffic court?" In the discussion from the floor, the following: practices were re ported: P Judge Fox requested discussion of the a. A prosecutor is present in cases in C. ` problem of court -appearance of traffic which a plea of' not gnilty has been officers, since this is a factor bearing in entered. an important Way on properly disposing * of traffic cases. The following practices, aside from the majority which have offi b. Another court bias a prosecutor pres- y ent at all times.' ' r. cers reporting day by day, were described: c. Several courts have none in continu a. In one court with an exceptionally ous attendance.: large volume of business officers are d. It was generally, agreed that there represented by sergeants regularly should be a prosecutor present when v assigned to court. ever the court j is in session. Tbe- b. In another court officers are assigned term "prosecutor" however, is not staggered court days and ate persons too popular, and -another title, snch arrested to appear on those days so as "public defender" or "pnblic at .that the arresting officer; can be torney" would be preferable to the present term "prosecutor." ffHS'asr Street and Highway Traffic Section 31 WEDNESDAY MORNING SESSION October 6, 1943 Group Session on Public Safety Education Presiding: R. G Salisbury, Director, Safety Promotion, State Department of Motor Vehicles, Madison, Wis.' A Preview of Post-War Traffic Problems By R. C. SALISBURY Director, Safety Division, Motor Vehicle Department, State of Wisconsin Transportation officials must plan now urged to share rides with others to make on how to handle the traffic problems of their cars last longer. With new cars the post-war era. It .is certain that these not available, used cars have been at a problems will not take care of themselves. premium. Jalopies which once; would Thus it remains for as to consider now have been considered ready for the junk- the future use of every possible aid in pile are still being licensed. Spare parts the prevention of street and highway for all- types of vehicles are getting, accidents. scarcer with each passing month. > Some traffic experts .have viewed with When the war is ended, civilians will apprehension our soldiers' homecoming. want to return to pre-war travel freedom Imagine a truck driven by a former jeep?' as quickly as possible. As long as ithe war operator meeting a car driven by a former - Is on, they will accept certain restrictions tank-man. Picture a combat flier zoom as bring necessary for the prosecution of ing around a highway curve in his private the war, bnt when peace .comes, there automobile. See a dispatch-rider who will be a demand for the lifting <bf these raised plenty of dlist on Guadalcanal step limitations. With new cars on.thej.market ping his motorcycle up to speeds ap and citizens flush with money earned in proaching the 100 mile an hour marie "just a period of war prosperity, highways will for the fun of it" attract heavy tourist traffic.' The majority, it is reasonable to assume, For how long after the war will the will be anxious to get back to normal presidential order for a 35-milk speed lives as useful citizens, willing to take limit be maintained? Inr lifting this ban, their part in making the world a better should lower, speed limits than those of and safer place in which to live. pre-war times be advocated? Should there Taught to toll the enemy, will soldiers be a nation-wide, effort to get more uni return and become criminals because of- formity in speed regulations, as weH^s their war-rime experiences? Men trained in other traffic regulations? __ ^ in psychology and medical research say Will a return to normalcy mttanthat "No." Then should we give much cre we must continue seeing 40.000; persons dence to the belief that because a man killed annually in accidents on our streets has been in battle he must be a vicious and highways? Will we seek toihold on. man .behind the wheel of his post-war to the gains made during War-time? automobile? When hostilities .are at an end, what will. The Civilian Picture On the home front in this war, civilians have felt the pinch hi transportation at many points. They have been restricted in the number of miles of travel allowed. be our battle cry to replace the plea,' "Save manpower for warpower1'? . How can we best attain freedom from fear of continued peril on our roadways? . i The Rost-War Car .' They have been limited . in the number Frequently one hears, a person say. "I j, and quality' of tires. They have been wonder what the cars will look Hike after * >>V - ~r'*? 32 32nd National Safety Congress, 1943 the war." Automotive leaders seem cer trian laws might make those on foot ap* tain that the first post-war automobiles., predato'more sincerely their own respon- will be tiie 1942 models. This [would be Abilities for sate coiriduct ;.in crossing tiie quickest possible means of supplying ' streets and using the higflright.-' the post-war demand for <ars, for it would require the least amount of time.' in reconversion of facilities from, war . Since the hardest hit; groups ofpedestrians are those in the child and the elderly age dassifications, j^ncation in work. Keen competition among [manu facturers,. however/ in all likelihood will .force rapid appearance of newer cars safe pedestrian practicek must' be direrted morebrgely tothesetwo specific groups. Children of school age can bereached with costs sleek designs within a year and lower ;operating, or two after the: war. ' most effectively through theschools, with, the. cooperation, of. parents,. teachers, - Some designers believe plastics will pre poliee Officials and. school satiety: patrols;. vision re-imj ofsaf !'.Dri gafrei in.pi* to bp Army . now,!:i addfti added milita dominate in future cars and that they will The pre-school !child must ta nnder tbe EKmi be air-conditioned and sound-proof, with wing of the parent! The eldeily pedestrian aclivi panoramic,. full-vision windshield, a peri can best be- reached through newspaper crease scope-type rear-view mirror and a safety, articles, radio appeals! and special leaf ingt shodc-absorbing crash rail all around. A lets. _/ ; rJ/'.... will 1 rubber executive recently predicted, that electronically-controlled bumpers which prevent cars from getting into collisions are within the range of possibility. Wind shield wipers may not be needed on post war cars because of new typm of glass now being manufactured. Some think the bantam-type car will become more popular than it was before the war.. According to one survey, we can expect that bytbfc middle of 1944 there will be "a demand for about 12,000,000 automobiles'., and trucks. Larger cities- might !well give thought to establishing mid-block bus stops in downtown areas where there is.: heaviest passenger demand. In the summer f. 1943 the city of Milwaukee demonstrated with! success, the.use ok tbis>pfan for the. ^benefit of 40,000 bus,riders, pith the result that exposure of these 'persons to. moving traffic was eliminated apd end-to-end runs of buses were speeded np noticeably. This plan, of course, calls for. no parking of _ motor vehicles on such streets - in .the mid-block areas, but the sailer, smoother abet) post-i He: biped menta instru entti activi the-w great be of of siz fr Undoubtedly army engineers [who have movement of all traffic Is assured. Bnsr meeb made extensive use of motor vehicles in riders can board and]alightt from buses of;pr waging the present war may have some without touching,, thej street: end-block . must influence on future designs of. vehicles.' safety zones thns are freed-for: the ex tiie O! Perhaps these, influences will include clusive use of street-car riders. goes smaller engines,' sturdier bodies, better glass and safer tires. Have manufacturers. made the modern car too comfortable? Comfort is appre ciated and desirable, fo a degree, but is it jiot possible that too much plush uphold stery, fancy arm rests and amazing ease of operation detract the-driver's atten tion from full-time alertness at the wheel? Pedestrian control may be expected to become .a more Important jpart.. of. post war discussions relatijig to traffic prob lems.:! . ''f !;'. [ Driver Edncathm and Contrbl : - The smallest high Sjchobi; can promote this phase: of Driver [Education by ask ing tiie cooperation of a . home supervisor. In tion j The! porta at thi amp know actna its Pedestrian Education and Centred . (parent; other relativ^ or neighbor) to undertake responsibility of uctnal drivihg with effort The man on foot- still remains .'the instruction, with lessons provided each proyi problem child in traffic control. In cur : week over, a period^of weeks by -the when efforts to reach motorists with the mes school authorities. (T^his inpartofthe actua sage of accident prevention, are must not Wisconsin plan. A cbpy oif Your Guide whet neglect further education of pedestrians. to. Driver Edncatjaibl 1943! Edition, will saucy &.;. While fte -are' abont ..it/ we might go on be mailed to you upon rdqitest to Safety safe?, record favoring a bit of enforcementfor Division, Motor* y#ide-r? Department given * fc\: U the pedestrian. Theenforcement of pedes Madison, Wisconsin). The "home-super the;: ;^ua< Street and Highway Traffic Sectionr : S3 vision" planofinstruction also serves to Should;.drivers, upon reaching, tike age. re-injpriKSon the adults the fundamentals, of--rsay 6S--be. asked, to- submit to re of safe. vehicle operation. examination before' being permitted ^0 !' Driver education in high schools has gained momentum because of the. interest in pre-induction training of youths about to be digible for call tomilitary service.; continue ' operating motor vehicles on , public .highways? Or should examination, be required by law at .the time of license - renewal for everydriver? ; I; . Army pre-induction courses in this -work . > Solving Post-War Traffic Probkims now.represent approximately 15 per' cent additional classroom work ..because of added-study in use of power winches, , military map reading, motor marches, etc. Elimination of . wartime, extra-curricular. ^activities such as tite Victory. Corps, in creased physical fitness program includ ing training in commando tactics, etc., will leave more time for the adoption of a better driver.education program in the postwar period.. In looking ahead to post-war i traffic problems, we icannpt .seek any |magic solution thatwiil erase.aU troublej spots, nor. should we expect any radical depar tures from the problems that confronted us. before the war. . But if accidents continue to plague us in ever-increasing intensity as weretnrn to civilian pursuits, people will want more and more' "safety devices'*, ontheircars-- headlights that will automatically dim . .Heavy .school.program schedules, com when meeting approaching rars at! night, bined with difficulty in obtaining' supple^ safety glass in windshields that will prove mental gas'rations, make actual driving resilient when struck by the occupant of. instruction almost impossible at*the pres a car, body structures of such durability ent .'time.. Any post-war- Driver Education tint no'' roll-over will cause' any part to activities, however, must include behind?- cavein, and other engineering ai ls that the-wheel training in order, to derive the will help motoriststo survive on the high . greatest .benefits. Such training, should way..-. . . W.: . ' * ' be offered in all high ..schools, regardless, And thepedestrian will demand more of rise.- _ sidewalks along rural highways, foot In bar efforts tb get away *from anto bridges and underpasses; more potice of mechanics hi order to stress development', ficers at busy corners and more signal) of proper attitudes in young drivers, we lights stopping all motor traffic at in^ . must not. forget that tite best driver is tervals. the bite Vfho knows something about what We are anxious to- see improvements goes up tinder tite hood of Us car. made m.anything that will-help reduce . In the post-war period, driver examina accidents and make onr roadways safer. tion procedures must be.made more rigid. We hope, however, that gains shade in The'time-to impress a person with the im-; aeddent prevention during the war- will portance of his driving responsibilities is . not be eclipsed by a terrible devasta at .tite-timehe applies for. his license Ex-. tion of life and. property .on onr highways . ammers must- be thorough in testing - after tite wap. At the same time ijre must knowledge, of ..traffic laws, virion and keep in-mind that increased nauibefs of actual driving ability. ' vehicles and drivers. will. increase traffic Insteajjipf ``driving around the block* .dangers. with the beginner, is it.not worth tite Onr present accident prevention pro- . effort , to. set up' driver-testing areas-- grams most be continued and expanded. proving grounds, yon. migbt call them-- - . We must press -onr legislatorsfor those:! where all types of maneuvers required in laws we . know can produce bestj results. actual driring can \ be tested to 'show We must demand adequate enforcement- whether or not an applicant has the neces of all traffic laws. Speed restrictipns.and sary skills to operate a motor vehicle zoning particularly callfor.speca^.study. safety! Increased attention should be And fear the 'majority of par pdtyl^-gimd,. gtyieii, also, to the' attitudes displayed by loyal citizens tiie year-aronad--we most the applicant in: meeting various traffic have sane, sensible programs of/public, 'Situations:' / safety.education. ' - :" I . 34 32nd National Safety Congress, 1943 WEDNESDAY AFTERNOON SESSION ! October 6,1943 General Session Presiding: Ca&l J. Rutland, Chairman, Citizens Traffic Commission, Dallas, Tex. Planning lor Post-War Traffic Safety _____________ By BURTON W1 MARSH ! --Director,-Ttaffic^EngmeeringwndSafetydSc^tnrenty dtanerfaw: Association, Washington, D. C i. Every state and each local community should start immediately--I mean pre cisely that, immediately--to make plans for meeting the serious post-war traffic safety problems. Putting off this essential job can mean that communities will not be ready when these problems are in their laps. transportation. That 'statement simply will not stand up under analysis. The main field of the motor vehicle (and note I say "main") is what? It is for short trips, fifteen miles being the average before the war, and it Is reason able. to expect that it; will be'approxi mately in that range after the war. Failure would mean a skyrocketing of traffic accidents which could produce easily an all-time, high total. Doing this post-war - planning job will mean new loads of work on the part of the folks sitting in this room as well as of under staffed officials, and civic leaders. Remember, too, that highway trans portation before the war accounted for at least four-fifths of all passenger miles rolled up in this country. .The major importance of passenger car transporta tion also has been dearly demonstrated, in this war. .! This ,job' must be accepted now. We know it is one of oar homefront jobs, and certainly when we think of our friends on the battlefront we can't afford to fait It must be recognized that the present reductions in traffic accidents are not an indication that this problem is getting under control. You know very welHhatby and large the reductions reflect two things--the re duced numbers of vehicles, and the re duced mileages of those vehicles. In other words, reduced exposure.. That is, a job you have to do--to sell that to the peo ple. To appraise this whole question we must look into the future. One of the questions is about the growth of traffic in the post-war period. With restrictions removed, traffic wiH mcrease quickly. Let's look at air travel., It is certainly going to grow, especially for long trips, not only commercial transport air travel but private transport is welt The heli copter Is going to have -its place in the sun, and so, too, I think. It is reason able to anticipate the tight plane. We may even see inch a thing as a. combination air and i highway .vehicle. You can even imagini there trill be an amphibian vehicle tbit iyou can roll across when the bridge is out, then drive on a highway, and in any congestion you can take it up in the air. However, as to the economics of all that' I think we have our fingers crossed. ; There are certain factors in air travel which indicate very dearly, it seemed to me, that it cannot tie expected to take the place, to any large extent^ of high way transportation. | There* is another situation which we will have to - face. It is the argument which you all have heard, that aviation is going to put a terrific crimp in highway First, takeoff and landing space. Y'ou have got . to have a lot of takeoff and landing space, even with helicopters, if lots of people``are gbing to use them. Ifc., ' v Street and Highway Traffic Section 35 That is a very important factor when There will be too many people who you think of the concentration of move simply prefer to go on their way ia their ments and mileages in and near cities. own private cars. Consider, too, that matter of the space Now let us look at how much we can which most be maintained between air anticipate this traffic is going to; grow: craft, both horizontally and vertically, if It appear^ that highway transportation they are' to be used in large numbers. is destined tck grow- considerably.. Prob Make the contacts in your mind, if you ably the pre-war estimate of the United will, between large numbers of people States Public Road Administration, that using aircraft; and large numbers of peo by 1960 there will be a doubling of ve ple moving in close, compact highway hicle miles of highway transportation, is traffic streams, three' and four, abreast, not greatly ont of line; ' - and with short apacings, and you will see that there is- an important implication there As newhighway facilities are produced in this country they will , attract new use. That already has beeu proved by the Then, too, remember that aircraft mo Pennsylvania Turnpike and other such tors must be warmed up. You and I will roads. get into oiir car and we will go ahead immediately. If the engine stalls, so what? we haven't lost much. We will Have greatly increased, traffic, and it won't be long after the war be fore we have it If we agree on that, then But if you are up in the air a few let us look at some of -the dangers and hundred feet and the plane engine should problems which are going to be confront stall, it would be a vastly different story. ing us. Among these dangers--there are So if you consider the time needed to these points. I will give them rather warm up aircraft engines, and the time briefly: required to get yourself to the aircraft and into it, and if you add those together, . I think you will readily agree that often yon could have been well on the way to your destination by highway trans portation in that time alone, whereas you haven't even started by air. First; post-war psychology with victory and release from restrictions. What is go ing to happen? Ail of us are going to want to celebrate. We are going to get up and go places. We want to be released from the restrictions and show that sense of release by doing things; and some will At the other end, of course, there would go so far as to want to* make whoopee, be similar tune taken, because you never and theyjwfll have money in.thefr pockets, could land aircraft exactly wfiere yot^ and they will want to makev whoopee wanted to go. \ wfrh~alcoholic^bexfijages when 4they are These are some of the reasons, then, Jjuving their cars, ^heywill want to why, air transport cannot be expected in throw off aU` control. Including self-con the near future to reduce highway trans- ' trol. That is a very definite danger. portation. Second, old and poorly maintained "Why did you take time to mention cars. Do you realize that at the end of this?" you ask. That is one of the points this year, half of all our passenger cars you' are going to have to deal with in will be seven"years old or older, and that -post-war traffic and traffic safety. a quarter of them will be ten years old Improved public transportation, if it or older? An old car-can be a afe car. makes the right kind of bid, can have . but under present conditions of pool an increased value in cities. It can cause maintenance, many of those cars will not people to continue to use it who have be in good condition. had to use it because of wartime restric Speaking of tires, one likelihood is that tions. a lot of people will want to go places on However, even granting increased weak and cut-up tires. Or, if you look at utilization, and greater importance of this it the other way, maybe there: will be form, public transportation is not likely lots of them .having new synthetic tires. to'decrease the use of cars because of That wilt mean that perhaps they will that good old fellow, John Q. Public. have some of the newest synthetics which 36 32nd National Safety Congress, 1943 are not yet developed to the point where will recognize it immediately. Other they are satisfactory for high speed. drivers will be out of practice in heavy, There is some indication that is true. fast traffic, and some new drivers who With these cars driven by drivers some of whom have gotten out of practice, I think you will agree that there is a serious factor there. Vehicle inspection campaigns have been reduced in some have developed in this in-between period will have never faced that at alL Their driving practices have not been tested, and this has been noticed, by many judges. places, which further accentuates this bad Seventh, pedestrian faults. Children in car condition. all too many places again are playing in Third, and again one of the most im the streets.. Many adults pedestrians are portant of all; this speed limit question taking even more chances, and one reason is going to be a highly important issue. they do so is because there is not so Yon can't duck it. If speeds are built up much traffic. * to high levels with old cars in bad condi Eighth, the darkness danger: Most tion, and with tires that won't take it, traffic fatalities occur during - hours' of and with drivers unaccustomed to heavy darkness^ Before the war, progress was traffic and fast speeds, it isn't hard to made against improper headlight mainte visualize the results. nance and use, and on improved street Fourth, road defects. Many roads are lighting. There is a danger that with all likely not to be in proper condition be the wartime reductions on lighting, with cause of inadequate maintenance: I think you know the reasons behind that Fifth, relaxed controls. Controls have been relaxed and there are very real dangers that they will not be reinstituted promptly and effectively enough. State dimouts and brownouts, that there will not be a quick enough relighting nor lighting improvement. Ninth, arrested programs: Many, traf fic safety activities have been stopped or seriously curtailed, restarting of activities police forces? How much have they gone can be much harder than was expected. down? Forty to sixty per cent already. There is a considerable 'danger of Traffic engineering staffs are cut out costly delays in reinstituting such activi entirely, or are reduced to a skeleton ties as driver training and traffic research force. All those things mean that stop and traffic studies.; It has pretty much signs and traffic signals are not going gone to pot. Arrested programs are an to receive the attention they should. Lots other real danger. of' stop signs and traffic signals have Tenth, financing: .With heavy federal been taken out, and properly so,' because taxes there will, be strong-, pressures of war conditions. Now the question brought to hold down state and local after the war of getting .those bad: to_ taxation. Remember, also plenty of post the places, either where they were, or to war plans are going to be developed, and the new places where they should be, is plenty of post-war ideas are going to whether it will be 'done based upon the be set forth which tjrill need money. fact or based upon needs. Those are Where is the .traffic safety post-war problems which relate to relaxed controls. planning situation going to be? It Is go Another example of that: Driver ex-, ing to be down in jibe cellar, unless yon animations and re-examinations have and I and the rest!of us get ready some been curtailed seriously in many places attractive and practical plans which will because of reduced staffs. Traffic judges produce the kind !of support that will have shown all too great a tendency, in warrant financing, j - many places, to go easy on sendee men and on war workers. Relaxed control is a very serious problem. Next; public understanding: Basically, what nan be accomplished for post-war traffic safety will be largely determined Sixth, drivers. There will be increased by public understanding of thtf need of, numbers of physically and, let us say, and by public support for, sound pro-, emotionally handicapped drivers after this grams and budgets required therefor. war. If you consider the situation you There are two dangers: .' . Street and Highway Traffic Section 37 First; that the public will have been be tackled vigorously, and to assure even lulled into apathy by this reduced traffic reasonably satisfactory results, post-war accident record. planning mnst be -started now. If the job Second, that so many other worthy is put off there may not be time la ter. . post-war projections will attract the sup In-as-rauch as a panel of distinguished port of the public that the traffic safety specialists is to follow with a discussion program. will go by the wayside unless, of these matters, it ill behooves me to it, aoo, has an appealing, practical pro detail more on just what is to be done gram. ' about it I have one general comment Here.'is another reason for starting this and that is that for post-war safety the post-war . planning1 job now: Deficient human element must continue to,receive traffic facilities. As traffic increases, it major emphasis and physical improve will, become more and more evident that ments are necessary. particularly in urban and metropolitan areas many .of our highway transportation facilities are not only inadequate, but they are outmoded. The same will be in creasingly, true of certain main-arteries. The need will have to be to have super ior types of high-efficiency traffic-ways, in' the cities express-ways and free ways which will be needed not only for cross town, by-pass and loop movements, but for radial movements out of the heart of Now.for five suggestions,which I hope may be of. some practical value to you. 1--Get started how. ' 2-- Organize a state or local j>ost-war traffic planning committee at once. 3-- Develop in written and diagram matic forms your approved post-war policies, programs, methods, financing plans, order of importance, and schedules, also assignments of responsibilities. the cities. .4--Coordinate post-war traffic and traf Funds for preparing plans and speci fications for these facilities are available right now--today. Money is available for that plan through federal aid On a match ing basis. The danger is that not enough of tbis planning will be ready so that this fic safety, planning with' other post-war planning. See to it, too, that traffic safety values, including adequate features for pedestrian protection, are given proper emphasis. 1 5--Sell your post-war traffic and traf work can start; and of course it las an fic safety policies, plans, programs and important unemployment angle, too,-right budget needs to appropriate government after the war. That Is the danger. department heads, the executives, key You realize; of course, the implication legislators. For example.'^spread regula that such, facilities, if properly designed, tion proposals, plans for scientific tests can have very great traffic safety value;. for intoxication, and training programs. For instance, -pedestrians are eliminated The thing for ns to do is to devise plans or put at separate grade .in; the matter which warrant that., public support, and of: free ways. What heeds to be done? then drive through bard to achieve that Obviously, each of these problems most by convincing the public. },] ' 38 32nd National Safety Congress, 1943, A Panel Discussion Planning lor Post-War Traffic Safety CHAIRMAN RUTLAND: I would out of every five cars,-buses and trucks like now to introduce these gentlemen: on rural roads are either coming from Mr. Donald Blanchard, technical assistant or going to the city. to the general manager of the Society of Automotive Engineers in New York. He will discuss the Post-War Motor Car." Mr. Walter Fox is manager of the This' is going' to change our concept about highway construction. It is going to change the idea: of building complete by-passes around cities, and in their place of Commerce. . Ch^fher . to. .-penetrate - the L city -with .adequate modem highways. ! . Mr. Maxwell Halsey is executive sec retary of the Michigan State Safety Com mission. Another serious problem which should be solved Is off-street parking, and in general the relief of congestion and ac Mr. G. Donald Kennedy, now Vice cidents that do occur on our city streets. President for Highways of the Automo-. live Safety Foundation, Washington, CHAIRMAN RUTLAND: Under D. C wartime traffic restrictions, notably the Lieutenant Robert E. -Raleigh, asso ciate director of the Safety Division of the International Association of Chiefs of 35-mile speed limit, do yon see any in dication that we shonld retain low speed limits in the post-war period? Police. MR. KENNEDY: Yon cannot make To start this off, I am going to call on Mr. Kennedy, to discuss highway engineering. As some of you may know, he is Vice Chairman of a special com mittee which was appointed by President Roosevelt to develop national inter regional highway systems for' post-war construction. MR. KENNEDY: About the work of the Inter-regional Highway Committee, I would like to say that that Committee, after nearly two years of work, has perfected the selection of a system of inter regional highway routes consisting of about 40,000 miles or rural highways, plus their urban extensions, which will give this country a national system of highways of a superior type. . In part it is a complete answer to the progress and have ;accident reduction by concentrating on j the speed problem alone: The 35-mile wartime speed limit naturally applied mostly to our rural highway driving, since cities already had limits before the war. Rural highway deaths for 1942 were down only 5 per cent under the .figures of the National Safety Council, indicating that the speed limit has not produced remarkable re sults. In 1942 speed was a factor in only, three out of ten fatal accidents. It seems to me that the post-war an swer, therefore, lies in reasonable regula tions, in continuing; onr program of'driver education, and in enforcing sound traffic rales, pins the building of highways that will make it difficult for a driver to com mit a fault. age-old question about 'whether this MR. HALSEY:! Mr. Kennedy, you country needs superhighways, trans have been talking about long-range pro continental highways, or not. grams, which are : costly. How- can we This Committee discovered that the finance to create ideal traffic conditions? principal highway and traffic problems MR. KENNEDY: The public already lie in our cities. It had been well under Is paying the bill through gasoline taxes stood by traffic engineers and* by high and special license j fees and other excise way planners for a long time, but it is taxes. The money {already is in' the pub interesting to point .out that half; of all lic treatury. If we {will use the, funds that 'highway travel in--America before the., are collected for this purpose, and if we war was on city streets,' and that. three do not divert them but use them intelff- gentiy. of mctn Not; era Is means The gr be spet that wt the rep our fed ther hr |_tem,<as country econonc traffic routes. Also, city th only tl express and loc ends tl be dedi MR. what p traffic MR. make i tools ai satisfac The streets, ments, signals, flectnre many 1 enginee in the CHA Halsey1 mg, wl traffic highwa; ; there, I how m MR. ical an feiid,w format! raent h years s one of aihg si There ' eights ' 4* Street and Highway Traffic Section ^ 39 gently, there will be an adequate amount fund of information pertaining to 'traffic. of money to pay for the improvements. That information, in most instances, is Not all of the 'money of the -post-war era Is to be spent in any manner of mesms on these newer improvements. The great bulk of funds will continue to be spent on the type of improvements being kept current; All of it is on file, and if we organize in the future until ade quate traffic engineering, we do hive at our disposal now the tools with which to work that we knew before the war, particularly I think the number of highway depart the' replacement of worn-out sections of ments that have a formally organized our federal aid highway system, the fur traffic engineering division is relatively ther improvement of our rural road sys- small, and of course we do need, in each' him, ami w<* do -iifwt rural rnafla in thfa state, to -see, that ,lhe. Jnghway.-ulepart- country if we are to maintain a balanced ment does organize and maintains an ac-. economy, and to generate all of the tive, progressive traffic engineering de traffic that will flow on our. principal partment routes.! CHAIRMAN RUTLAND: Mr. Hal Also, our city street system, our major sey, do yon know. approximately how city thoroughfares, need .attention--not many traffic engineering divisions there only the ones given over to the local express way, but the. major city 'streets and local thoroughfares, and it is to these ends that the great bulk of money will are in the United States now? MR. HALSEY: States or cities? CHAIRMAN RUTLAND: States. be dedicated. MR. HALSEY: I would guess there MR. BLANCHARD: Mr. Kennedy, what post-war highlights do you see in traffic engineering? MR: KENNEDY: We will continue to make use of the well-known methods, tools and devices that have brought such, j satisfactory results in the past decade. . The .providing of additional one-way streets, restrictions on turning move ments,-the providing of better signs and signals, the better use of paint and re flective devices, are just a few of the many things that can be done in traffic engineering that will bring great results in the field of safety. are about ten or.fifteen that are very, folly developed, and about 50 per cent of the rest of them are half developed. We still have quite a lot that are largely traffic engineering divisions in name only, j There is a long way to go. We werelmaking very rapid progress the last7five years before the war. CHAIRMAN RUTLAND: Arad you feel that that is an essential part of the. post-war planning project? MR. HALSEY: I certainly do,, be cause wherever they have been adapted they have ..prospered and have demon strated their value. CHAIRMAN RUTLAND: In Mr. MR. RALEIGH: What about cities Halsey's question about traffic engineer-, where future blueprints are not being mg, what do you see in the status of drawn today? traffic engineers, engineer divisions of MR. KENNEDY: There are many : highway departments? How many are. snch cities, of course. The federal:.gov-- there, for example, in all the states, and eminent already has made $6dkO0O,OO(> * how many do we have?. available for planning of post-war im-/: MR. KENNEDY: The mere numer prbvements.. litis money is available ntot; ical'answer to that question,. Mr. Rut . only.to the states bnt also for the first;, land, would not give a great deal of in time to -cities, and counties. formation, since each highway depart If the public agencies do not have cm-;. * ment has had established for nearly eight ployees of their own, they are enabled years a highway planning survey, and to employ private consulting engineers; - . one of the elements of the highway plan so there really is no excuse today for - ning survey has been a traffic survey. not preparing plans--with one possible . There has been developed in the forty- exception, and that is the ability! of -that eight' state highway departments- a vast stated county or city to match planning 40 o' 32nd Nattonat Safety Congress, 1943 money. That Is the requirement in the die dominant element in traffic. If the in federal regulation. dustry sells five or more bullion vehicles MR. HALSEY: Mr. Kennedy, what will happen to the state or the city that lags behind in drawing its plans? As a practical matter, if you please, a politi annually for' several yeats after it gets back into production, it j will still take years before, these new vehicles predomin ate. cal administrative matter, might they not There is every reason [to believe that be at a loss and not get their full share? the first post-war vehicles will be essen ~MR. KENNEDY: Do you mean in the tially 'the same as the 1942 models. The actual building program? MR. HALSEY: Yes. industry will follow this j policy for the reason that it feels that j providing jobs quickly for our returning fighters and for MR. KENNEDY: Well, General the multitudes released by munitions fac Fleming has been saying repeatedly tories, is its No. 1 post-war responsibility. around the country, during the past few It can only fulfill this responsibility by months, that in the early years of the resuming production om 1942 models, depression the reason the federal govern perhaps with minor mollifications, and ment turned from a public works program with 1942 tooling, since to take time to to a work relief program was that plans develop new models and; to re-tool for were not prepared their production, would produce an in There were $4,400,000,000, I believe, tolerable lag in re-employment By using or thereabouts, appropriated for public existing designs and tooling and given works in 1933. That was made available the necessary materials, it has been esti about the middle of the year. By the end mated that the industry can be bade in of that year it was found that work was substantial production in * from three to not getting under way, and on November six months from the time Washington 25tb the famous C.WA conference was gives it the go-ahead on the reconver called, and that money was diverted from sion of its plants. public works construction to work re Consequently the traffic stream imme lief. diately after the war will be made np pre There followed, in the ensuing years, dominately of the same general type of the program that everyone is familiar vehicles we were accustomed to before with. The penalty will be,- I think, not the war. There is therefore no inherent so much to individual states and cities, reason why in the immediate post-war but the penalty to automotive transporta period, the vehide should introduce any tion, for its failure in providing the plans new element into the traffic safely prob now so that these facilities will be built lem. when the time comes. Of course, for a time during this period, MR. BLANCHARD: Any statement the average age of vehides in service will about what is going to happen .in the be above normal and war-time shortages future necessarily is a matter'of opinion. of maintenance labor and; materials may Perhaps I ought to preface my remarks have resulted in a deterioration in the by saying that the principles I express condition of the pre-war vehides. These are my own, and if they have any similar two factors may present a situation call ity to any that may be expressed by any ing for some special attention:; However, body living or dead in the future, it is there is nothing in available aeddent stat purely coincidental istics to indicate that defective equipment ' The end of the war probably will find us with twenty or more million vehicles oh our highways--the survivors of the more than thirty million vehicles we had at the end ofl94l. During the period of has ever been a major cause of aeddents. Hebce it may well turn; out that such deterioration In equipment as may take place during the war, may not result in any- major changes in the safety picture. industrial reconversion and even after Frankly, 1 doubt that anyone can be production of new vehicles is resumed, too definite abont what kind of cars the these pre-war cars and trucks will be industry will produce In the post-recon- versio; which car of will b tion it indust meat 1 resum empha willinf It is our ca as altt expan dnee t tics.' ' a chat tion o provk dustrs mater Const ment sound done, will b obscti: It i our ai ductic led to fuels the b not gi at lea siderit tane i will n likely this It A wfflb its ei be a beai ferenl But to be, fidenc 1. : tensiv the, e 2. ` sound 3. * Street and Highway Traffic Section 41 version period, despite all . the; pictures which have been published showing the car of the future. It seems unlikely there will be. any new'models put into produc tion immediately after the. war. assuming industry is willing to delay re-employ ment by taking the time to re-tool before resuming volume production, which, as emphasized previously, the industry is not willing to do. It is true that war has greatly expanded our capacity to produce light metals such as aluminum and magnesium. It has also expanded not only our capacity to pro duce plastics but also the variety of plas tics.' The war has also given the industry a chance to learn much about the fabrica tion of these materials. But the war has provided little opportunity for -the industry to test out the application of these materials in automobile construction. Consequently, until the test and develop ment work essential to the creation of soundly engineered automobiles can be done, the extent to which these materials will be used must be shrduded in some obscurity. It is also true that the war. needs of our air forces have greatly expanded pro duction of high octane fuels. This has led to much talk about 100 octane motor fuels for post-war cars. According to the best information I can get, we are not going to have 100 octane motor fuel, at least during the period we are con sidering here. My guess is that the oc tane rating of premium-price motor fuel will not be above 90 and that it is more likely to he several, numbers lower than tins figure. It may be that the car of the future will be much fighter. Perhaps it will have its engine in the rear. Maybe it will be a greenhouse on wheels. It may be a whole lot of things sensationally dif ferent from anything in the past But whatever the future may reveal it to be, the public can anticipate with con fidence that: ' 1. Engineers will continue their in tensive efforts to build more safety into the, car. 2. The car of the future will be a soundly engineered job. 3. The cair of the future will continue to represent the most results per dollar of cost which the industry is capable of producing. ^ In conclusion, I would like to empha size that no matter what the future of car design may bring, it is very unlikely to produce any overnight change in the' traffic problem. In other words, because there are always so many millions of old vehicles on the road, the new vehicle' can only have a slow, and gradual effect on the overall picture. CHAIRMAN RUTLAND: In the event we ever do have a type of car that may have higher speed limits, new plas-j tics, different visibility, and the like. Lieu tenant Raleigh, what is your slant on what we can do to keep up with them? LIEUT. RALEIGH: This question has been raised recently by some police officials.. Commissioner Gentry of Okla homa, in particular, is wondering whether it might be possible to develop for the police a standard police car. What he has in mind is many innovations that perhaps would be desirable from .the enforcement point of view, perhaps a higher speed range, and things of that nature. Would you comment on Xhalt, Mr. Blanchard? MR. BLANCHARD: If the standard cars with minor' modifications are nclt adequate for the police job, it would be my thought that if the police officers would specify what they want in terms c>f performance--not in terms of. design de? tails--that it would give. the. manufac turers an opportunity to see what they can do to produce that car. MR. HALSEY: Mr. Blanchard, we hear all thus wild talk about the. ajtr transport of the future, and wild " talk about the shape of the car and what it its going to look like. I hear, quite a few people talk about wild speeds we inaiy have. How much can you tell us about the. speed characteristics of the cars, we will be getting in the post-war period? MR. BLANCHARD: My personal, opinion is that top speeds are not going to be materially higher than they atfe today. That will be true particularly if fuel costs go up. It is a fact that in. tlie tipper speed ranges power consumption is going up with the speed, whidt means 42 32nd National Safety Congress, 1943 that the gasoline consumption goes up any change in the visibility, the structure with it of the car, to give more visibility in MR. FOX: Mr. Blanchard, I have a front? question I should like to ask you: How MR. BLANCHARD.: I think there will this post-war car affect traffic safety? were certain evidences that progress was MR. BLANCHARD: It is not con being made in that direction in some of ceivable to me that anything that might the pre-war models. I believe the im be done to the design of the car would portance of it from a safety standpoint *:S'/ present a major problem for traffic people in some cases has been over-emphasized. to worry about Any changes that do CHAIRMAN RUTLAND: We have influence your problems are going to looked at the future of the motor car, take time. In the probable event that and we have had a brief picture of high some change in design should drastically way building. The police have to have alter the problems of the traffic authori something to do with1 all of this, ob ties, the influence of that drastic change viously. Lieutenant Raleigh, I am won in design would not be an overnight dering if the police of this country are i; thing; it would take time to exert in envisioning post-war planning? In other fluence, and during that time there would words, .isn't this a parallel movement of be an opportunity for both the traffic all forces and agencies that have responsi authorities and the industry, working to bilities? I wonder if our police depart gether, to develop whatever new tech ments are preparing themselves for this niques were necessary. impact. I wonder, too, sincerely, if they MR. HALSEY: Mr. Blanchard, how strong do you think the need is for the. conservation of our present cars? There has been some rather disturbing news paper publicity which I think is confus do not make their preparations for the proper assumption , of responsibility, what the public is going to demand of them or someone else in doing the job. What do you think about it? ing the American people. How strong LIEUTENANT RALEIGH: Mr. do you think that need is? Chairman, I am inclined to believe that MR. BLANCHARD: I don't think too few police officials in the country anybody would expect me to take any have given very much thought to post position other than to say that-the auto war traffic planning from the enforcement mobile is essential to the continued opera Rpint of view. tion of this country, either on a war or That is something which most of them peace basis. I do not know what the are just beginning to think about The minimum number of cars is that we can International Association of Chiefs of get by with, but certainly the reaction Police recognized that and one of the of the public to rationing, and so forth, things that they are definitely planning indicates that the automobile is pretty to do in the next few months is toehold important to them. regional IACP meetings for the purpose I do know that the industry is con of telling these- chiefs what they must do stantly making representations to Wash in planning for the control of post-war ington as to the needs of the motoring traffic conditions. public for maintenance materials and I do not think there' is any question maintenance labor. However, I think we but that after the war--and immediately should all realize that in Washington the after the- war--the police are going td top man who has to make the decisions be faced with one of the most terrific has some facts about this war situation problems they have ever had. I have been that we may not have, and he has to use quite interested in asking many chiefs of his judgment as to the best overall police, in my travels around the country, allocation of men and materials. this- question: CHAIRMAN RUTLAND: Several questions have come in, Mr. Blanchard, and I wonder if in your opinion people are expecting that there is going to be "Chief,, the day that peace comes peo ple are going to relax and celebrate and drink too much, and it's going to be quite a job. What are you going to do about Street and Highway Traffic Section 43 it?". And without exception, every chief of police has said to me, "Brother, that day I'm going to be out of town." On top of that, as. previous speakers have indicated, there, is going to be a relaxation of the restraints we are operat ing under today, which now are neces sary. Speeds are going up; there will be a' carefree attitude, a spirit of celebra tion on the part of our drivers, a disre gard for traffic regulations, more vehicles, more tires, and it all adds up to one conclusion, that the accident rate is going to skyrocket. That is a police respon sibility, to see that that does not happen. Certainly it is one thing that every police chief today should be planning forilt is like wartime traffic control was immediately after Pearl Harbor. The term was used frequently, but there were only a few people in this country who really knew what wartime traffic control was. MR. FOX: How' will the training fea tures of police work be handled? Are they thinking about more training for the men? LIEUTENANT RALEIGH: Yes, I think most police chiefs and superintend ents,- particularly in the state group, recognize that one of the things they can do today which will help tremen dously after the war is explaining their police training program... In several states, and I think of West Virginia in particular. Superintendent Clair Hess is planning to set up a state wide police training school. That will not be limited to the state police, but the school will'be for- the police of the State of West Virginia. There is a trend in thhtSirection. There is no question but that from a police point of view, to do an effective job* .now and after the war they must have trained men. They cannot do it with amateurs or auxiliaries. CHAIRMAN RUTLAND: That prompts another question on my part: Looking at this question over a long period of time, literally we have given birth to 30,000,000 automobiles in this country, and almost overnight, I might say. During, all that time, and even be fore, for thousands of years police work, as I see it, has been largely that of deal ing with crime, where police must ,be hardboiled in a sense and mustt deal with a very firm band in handling criminals. In giving birth to this automobile we have an enforcement problem,' and ob viously it has been dumped into the laps of the police, and the same techniq.ut and training that has been Hr<en to po lice for the handling-of criminals can not be the same as that today, when they deal with the average type of siccident in 75 per cent of the cases. So I wonder if the swing from a crime complex to a traffic complex has been met by our police forces. That leads up to the specific question: Is there a fertile field for recruiting into police ranks men who are now. in the military services and who may be scheduled now by police officials for re turn into their ranks, men who may be better qualified to absorb police training now by reason of their military experi ence than they would otherwise by mere ly picking up some little candidate be cause they meet physical qualifications? LIEUTENANT RALEIGH: The an swer to that is a definite "Yes." The survey made about six months ago indi cated at that time that 25 per cent of the 110,000 policemen in this country had left their departments. Only 9 per cent of that 25 per cent had been taken into service through induction. I do not recall the exact percentage that have gone into the reserve or who were commissioned, but part of them,* of course, have gone into defense industries. Many police de partments have lost some of their best men to the armed -forces. Most police chiefs- are planning to ob tain their personnel after the war from the armed forces. There are several rea sons for that. These men have, been policemen in the past.. Some of the best men have gone into, service, they have received- this new training in the. Army which will be of value to them, and there is one- other reason that perhaps some of you do not recognize: Our Army and Navy today are training our soldiers and sailors how .to kill with their hands. That, some police chiefs .be lieve, is going to present a terrific prob- 44 32nd National Safety Congress, 1943 *" V lem to the police after the war. The killer instinct, and the fact that many thousands of these men will know how to kQl with their hands, will be a very great threat after the warf So police departments today are planning already to combat that training by training their present personnel in the methods of pre venting such attacks. CHAIRMAN RUTLAND: I was not altogether thinking about those who have left police ranks and who have gone into the service and who will return. I am thinking about other men who may have been trained in certain police work in the military services, who have never had been to pay much more attention to. that than to traffic deaths.. It is one of the important things that . the police should be planning for now, and that is, how to combat it, because we are also going to have this skyrocketing of traffic deaths after the war, and there are going to be more people killed in traffic accidents than through a crime wave, as has always been true in the past. CHAIRMAN RUTLAND: If you were a police chief in the average large American city, and you were interested in post-war planning, as are our highway engineers and motor manufacturers, what would be two fundamental steps you any who C are Leg this grai her our fieai whii nati ask we this local or state police work. would take in your police department in M r The point is, are our police generally, connection with a post-war planning pro shot in this" country, waiting for those men gram? tory to return, or are they shaping up a schedule now of recruiting? I think that is a post-war planning program for our police officials. I wonder if there is any member of the panel who has a question. MR. BLANCHARD: Lieutenant Ra leigh mentioned the possibility of a post war crime wave of some proportion. I am wondering if, when that happens, or if that happens, public pressure will cause LIEUTENANT RALEIGH: Well, if I didn't have a good set-up now, I would put it in right now, because in wartime it is possible, in some departments; to get some things you conld not get previously. You have got to have that to-start with. CHAIRMAN RUTLAND: What do you mean by "set-up," specifically? LIEUTENANT RALEIGH: I mean sufficient personnel in the traffic division, L bow plisl legii us 1 troll the pen com of t ope the police force to raid their traffic forces the traffic division within the city police stre in order to combat that sort of tiling? LIEUTENANT RALEIGH: I believe the answer to that is probably "Yes." With the beginning of the war, almost immediately we had discontinuance of manufacture of tires, and we also had ra department. They must have the neces sary equipment, the support of the local safety council and other community groups. In other words, they must have a -standard program, the same sort of thing that has been set up in many cities. bad latic I try of i seei tioning. Many police chiefs and public CHAIRMAN RUTLAND: Is there officials in this country assumed the at anyone in the room who does not know titude that because of rationing and the about the standard pattern of police of- and job law. reduction in travel, there was.no more Seals? Don't be embarrassed and don't V traffic problem. Of course, there was take undue credit In other words, I take goo nothing any more wrong, than that it that everybody in the room knows and The result of that trend and that think about the standard pattern of police work sho ing on the part of some police led to --and yet you represent--what shall I this transfer of men out of traffic`divisions, and the dropping in some degree of their traffic enforcement programs. That is difficult to overcome. I think most police chiefs recognize the importance of traffic in their overall police problem today, but after the war (and this is the view of many police chiefs) we probably will have a very bad crime wave. The tendency in the past always has say--fifty American cities? Well we will just have to hope that they are -making a definite post-war planning program with in their own police departments. If they don't have this program, where can they get this pattern? h. LIEUTENANT RALEIGH: ' Qhe soured, of course, is the safety division of the International Association of Chiefs of Police. They will be glad to 'supply A bee law we a fa H wftl thai it it it u Street and Highway Traffic Section 45 any Information on that to any of yon to get at this legislation: Let's get at it who are Interested. now, and be set for the post-war period. CHAIRMAN RUTLAND: Now we are going to pass to "Uniform Traffic Legislation.'* With a lot of money in this country, with a lot of travel, with grandmother in the West going to see her grandson off to the Navy in the east, our boundaries have hided into insigni ficance. We have moved over them every which way. We have brought our whole nation closer together. I would like to ask Mr. Halsey, in that respect, where we stand, with respect to uniformity in Legislation and administration are more important than mere, techniques, or methods, and until we can get the admin istrative aspects up to the technical! as pects, many of pur good technical develop ments simply win not be used. I have seen many new techniques invented, and peo ple have tried to apply them, only to find that the administration was not ready for than. If you try a new technique! and your administration is hot ready for it, you wffi spoil the new technique. this nation, in the traffic safety movement. The law, of course, is undramatic, and MR. HALSEY: Mr. Chairman, first I should like to make a very brief introduc tory statement. ....... the temptation is to spend more rime on other subjects; but the time is now ripe to go back to this rather undramatic' law. Legislation has always been the back bone of almost all that has been accom plished. . Our big struggle for uniform legislation is so far bade that many of us have, lost sight of it. Legislation con trols the following types of things: Funds, MR BLANCHARD: I would like to ask what steps are being taken to give the states authority to limit access to these fine new highways we are going to have, particufarty on minor cross streets, and hot dbg stands and other encroachments. the authority under which we operate, MR HALSEY: The story is briefly personnel, their authority, position and in this: Before the war we had twelve states come, the procedures under which many that had access legislation control; a of them operate. Certainty it controls the standard model act was prepared ity the operations of the motor vehicles on the legislature, and five states adopted it. That street and on the highway. So let's go gives a total of seventeen states-that have back and review the importance of legis some kind of legislation, but still tliirty- lation. one states do not have such legislation. I have seen in many parts of the coun try good men and good plans fail because ofpoor laws. On the other hand, I have seen what I would call second-rate men and second-rate plans do a'much better job because they were backed by a good law. What we have got to have, then, is good men, good plans property instituted and instrumented, by adequate law. We should be doing the foundation work for this immediately. The importance of controlling access, can not be overestimated, because unnecessary intersections and interference from park ing and development along the roadside may well ruin anything, you build. Access can be controlled by two methods: You can do it physically by elevating or by buying an enormous right-of-way. That of course is very ex pensive. Or, you can do it by denying access by law, and selling pff by law some of the rights which you purchase through your legal control . A lot of people were sour on the law because people tried to pass too many laws, and we had the old slogan, "What we ought to do is pass a law." That was a fatal approach to it If we do not do that we will get! into the very annoying process by which we have rebuilt a single'highway as mahy as ten times, and -where we continually are having to by-pass the by-pass. The sad You may not solve the safety problem cases of hot dog stands being built before vrith a. good law, but it is equally true the pavement, is laid, certainty is liome- that you may be prevented from solving thing we must avoid if we are to get our it if you do not have a good law to back money's worth out of the huge- expendi it up.. So let's not wait until after the war tures we expect to make. It- 46 32nd National Safety Congress, 1943 As has been pointed out, we are trying to build highways to last fifty years. The only possibility of making a highway last more than ten years, which was the earlier expectancy, is by complete insub* tion. If that insulation breaks down, you will short-circuit the whole game, and the ony way to do that is by proper laws controlling access. MR. FOX:"Mr. Halsey, what bbnket authority do traffic engineers have or what should they have in administrative functions in new construction? MR. HALSEY: Unfortunately, not very much. Traffic engineers in general do not have sufficient direct control. In too many instances they are not author ized ttrtake action on design. In too many instances they are not given any control over design. Certainly matters such as design are not legislative detail matters, and it would be no more foolish han to write detailed specifications into the law. Those details must be given to the agen cies presumed to be competent to handle them. Since signals and markings are another type of thing that the traffic engineer should hpve full control of, some of the more progressive thinkers are recommend ing that administrative authority be given to the extent that trained technicians actually can try out things which their surveys show are good, and run them for perhaps sixty days before public hearings. We are going to spend millions of dol lars in pouring cement If this cement sets in the wrong shape or in the wrong place, we will have lost the chance of a lifetime. Fool-proof highways have reduced acci dents as mnch as 75 per cent and the elements in those fool-proof highways largely have been geometric design ele ments over which the city and state traffic engineers have a great deal of authority. You have got to put the traffic engineer in a position, .through law, so that he can squeeze the maximum safety value out of the post-war construction dolbr. CHAIRMAN RUTLAND: And if our municipalities had blanket ordinances that delegated *that authority to the. traffic en gineering division, then they could estab lish these theories depending upon the flow of traffic or the changed conditions, and the like, and that is what is needed? MR. HALSEY: Yes.' CHAIRMAN: There is no model or dinance in that respect as far as munici palities are concerned, is there? MR. HALSEY: Yes, and there are many good samples. I will be glad to communicate with anybodp who would like to see some of those samples. CHAIRMAN RUTLANp: I notice, Mr. Fox, that Mr. Williams, general man ager of the National Safety Council, has copies of the post-war pbnning program for Syracuse. MR. FOX: Yes. that is right CHAIRMAN RUTLAND: Does that post-war pbn have in it the provision for an ordinance that does give this blanket authority to a traffic engineer? MR. FOX: Yes. We put in, as one of the points in our post-war pbn regarding traffic safety, that the traffic engineer should be established in his position by ordinance. CHAIRMAN RUTLAND: I see Jim Economos, Secretary of the Traffic Court Committee of the American Bar Associa tion. who has done a lot of work on traf fic legislation. Jim, do you have a question you want to ask? MR. JAMES P. ECONOMOS (Chi cago, Illinois): I agree about the neces sity for uniform traffic legislation. There are two parts, to it. one state and the other municipal. What I want to know is, bow are we going to get it? MR. HALSEY: I think that is largely a sales job. We simply haven't done a good merchandising job on the impor tance of changing the bw and bringing it up-to-date.- It is a bard thing to sell. MR. ECONOMOS: Do yon know of any agencies that are working on that? MR. HALSEY: I think Public Admin istration Service has been doing some of that work. . Almost all safety councils have been fighting for it The Highway Users' Conference has been hard at it CHAIRMAN RUTLAND: Well now, that brings up another post-war pbn for safety councils. MR. HALSEY: There is nothing that Street and Highway Traffic Section 47 will delay various city groups getting to* perience in coordination, doing a post-war getfaer any more than confusing the law. job. You. will find more arguments between judges and police officers and other peo ple because the law simply isn't clear as to who has What authority! CHAIRMAN RUTLAND: Summariz ing this for just a moment, here we find a motor car with a definite plan. Here we find highway engineers with a definite MR. HALSEY: Lieutenant Raleigh, plan. We have found a weakness in the wouldn't you say the same thing would police plan. There is a definite weakness apply to police departments--this matter in the legislative plan. We must move of authority in traffic, in some cases? along on atl these fronts. I think we LIEUTENANT RALEIGH: Yes, def initely. The question I would like to ask is this: What plans are. under way or should be established to continue the State Highway Traffic Advisory Com mittee? might take a few minutes to discuss a few points with reference to public edu cation. I would like to ask Mr. Fox of Syracuse what he thinks about the mental attitude . of these 45,000,000 drivers immediately after the war. MR. HALSEY: About ten years ago most of the administrative people came to the conclusion that in states we needed an agency to coordinate the activities of the highway department, the state police department arid the motor vehicle depart ment That tyas talked of for some time, and plans were under way to do some thing about it when the war arrived. MR. FOX: We are going to have all these people coming back more or less contemptuous of danger. We are going to have the exhiliration of victory: we are going to have freedom from restraint; gas rationing and everything else will be over, and people will want to go some where arid go there fast We have got to begin laying our plans now to carry on The war immediately made that situa public safety education. We ought to tion jell, and there was established in begin to look aronnd and see bow we are every state in the Union what is known going to get those funds. as the Highway Traffic Advisory Com mittee to the. War Department There has been developed standard legislation which will convert this Highway Traffic .Ad LIEUTENANT RALEIGH: Mr. Fox, what types of public safety education, in your opinion, will be most effective? visory Committee to the War Depart MR. FOX: We have got to realize^ ment to a peacetime agency which will first of all, that, selling safety is a mer clothe itself with the proper authority so chandising job, jnst the same as selling that it will become a closely knit. well a suit of clothes or a pair of shoes. The organized machine to see to it that you safety, message must be made interesting. have standard traffic safety and transporta We must get away from the idea of tion plans in a state. Certainly the heed for that will be even greater during the post-war period. No one in this room would like to see three separate conflicting and overlapping plans in a state, one by the state highway de partment, one by the state highway police and the third by the highway motor vehicle plant Certainly public opinion will be in much better shape if plans could come back supported by three state agencies rather than by one big state agency. preaching. I don't think we are going to get too much acceptance to the idea of preaching. People have been told sio mneb about what they are' to do, as far as the war effort is concerned, that I believe we mast try to get our message away from that angle. I don't like the term ''slogan,'' and I much prefer short mes sages that will hit people. The use of the radio, films and things of that type will go over in a bigger way. We must realize that in different communities the message may have to be directed to.different types of people, and we can't always go`along on Certainly we would be foolish not to the same old line. Maybe we can put np capitalize on .an organization in each state street posters for a time, and then some which will have had .several years' ex thing else the next time. In other words, 48 32nd National Safety Congress, 1943 we have got to mix up our stuff. We time. If we could get | the preponderant can't be satisfied to use one slogan all the number of our schools going on that pro time. Does that answer your question? gram, it will - become a.1 relatively simple MR. HALSEY: Mr. Fox, what about matter to convert and add to it We ought the timing of this program? It strikes me to do it much more easily than if we were that yon would be in a very bad spot if starting it over agpin. . you let your budget run down and then MR. FOX: I believe that is all I.have found that the time when you need it to say on the matter of public safety edu most you are out of money. cation. It has to have the support of MR. FOX: Timing is most important, good enforcement it has to have the sup as it is in any type of sales campaign. port of proper engineering techniques, p When the rationing ends, then is the and also legislative techniques. time when we should be prepared to act CHAIRMAN RUTLAND: Thank you, f: I cannot emphasize too strongly the need Mr. Fox. We have tried .to cover a lot of continuing the present public safety of territory here, dealing with 30,000,000 education which safety councils and other automobiles and 130,000.000 people,, equip groups are doing. ment enforcement and everything else. MR. BLANCHARD.: Mr. Fox, I would Some very good points have been brought like to ask what is being done at the out ! state, county and city levels to promote It all tends to reflect the responsibility safety education through official agencies, we have in post-war planning programs. i' schools, and so forth? Are there any questions? MR. FOX: In some ways that is one MR. LINCOLN LIPPENCOTT (Chi of the most important things we in the cago,* Illinois): Mr. Fox mentioned the I public educational field of safety have to difficulties in reaching adults in an educa do. We have two fronts, you might tional program. Has anything been done say: We have the public, and we must nation-wide through the {Office of Civilian try to interest them; but we also must Defense, air raid wardens, auxiliary po interest official agencies in full-time traf lice, to teach them safety so they can be fic engineers and a police department come a part of the adult educational safety which is adequately manned. program of the community? Many times a safety council can go to MR. HAROLD GRlNDEN (Duluth, bat for a police department or for a traf Minn.): I cannot speak for the nation, Prie.i fic engineer, in order to get those tilings. There is one other point: We should all realize that the schools must take a very much greater part of but I do know that in Minnesota that has been an important factorin the train ing of our civilian population, as far as OCD is concerned. this load, especially as far as driver edu cation and driver training is concerned. We ought to realize, that adult education is difficult at any time. Adult re-education CHAIRMAN: Are there any other sub jects? If not, we appreciate your at tention to this discussion. Now.snmming this up for just a second, this is a broad Pan Qth L is even more difficult. In other words, the program. Let's present bur view for just D drivers who have developed certain Ways a moment and see what might happen, and over periods of years will find it very how-we relate to it: , difficult to be re-educated. But if we can First, we will have plenty of gas and get this education to the one or-two mil tires .after the war. .We; are going to re lion young people a year, who become sume some degree of a higher speed than of driving age, if we can get them to we have had during the. war. know the proper techniques of driving, We are going to see thousands of men that is one of the most fertile fields for on the highway. We are going to receive 'public safety education that we have. a release of pent-up emotions. We are MR. HALSEY: I think early educa going to have police whoj are untrained. tion programs are the best things we - We are going to see. a stampede, in a have. We'could launch such a program sense, of equipment manufacturers .selling more quickly than we could in peace all kinds of traffic control devices, and Ji subj fror pea com con in t T Jud safe J to 1 the I t Street and Highway Traffic Section 49 we will see plenty 'of cities gobble them police pattern is not utilized to its fullest up, tmless they standardize on technique. extent, neither is our public education, We are* going to see many cities, many and neither are we. adopting standard, na legislatures, perhaps, if this impart is as tional, uniform legislation. serious as it could beand I am notpre- I think that is a challenge to every dicting that it will, but there is a pos one of us, and I don't know of a single sibility that the first year or two after person who is going to get more value out this war we will kill 50,000 people on our of grouping those responsibilities and ac highways. If that does come we will see cepting those challenges than the men many of our public, officials, many of our in this room, because down the line some state legislatures, get panicky in trying place the public is going to want men who to do something about it. And they are can do this job. going to begin to do something, perhaps, about legislation. As I said a day or two ago, the Araeri can people have tasted the value and the They may deviate from these stand benefits of a good crime control move ards. That is why it has been brought ment in this country; they have tasted the out here today that these standards ought benefits, of public health and of fire -con to be as familiar to you so that when trol. They have not as yet tasted: the that time comes you yourself will be in benefits of traffic control, largely because a position to say, "Here is a bible we they do not know it. When they da find can use as a guide in this program." out about it they will demand it and it Traffic engineering and highway build will be my neck or yours unless we are ing men are turning out patterns. The capable of meeting that challenge. THURSDAY MORNING SESSION October 7, 1943 Group Session for Traffic Court Judges and Prosecutors Presiding: Judge Adah Younce, Municipal-County Court Greensboro, N. C The Court's Responsibility for Safety in the Community A Panel Discussion Panel Udder: Judge Pebry A. Frey, Cleveland, Ohio. Other panel members were: Judge Gibson E. Gorman, Chicago; Judge.Hawes E. Harb, : little Rock, Arkansas; Judge John L. Niblack, Indianapolis, Indiana; and Jack DeVoe, Deputy City Attorney, Lincoln, Nebraska. Judge Frey outlined the scope of the subject to be discussed, pointing out that from the standpoint of the number of people who annually appear in traffic courts, it could be-assumed that the traffic court is the most important of all conrts in (he American judicial system. The first discussion subject proposed by Judge Frey concerned the judge as a safety leader in bis community. Judge Harb declared the public looks to the judge for safety leadership, unless there is -some active community safety council providing the necessary. enthu siasm and leadership. In Little Rock; for example,' he helped organize the City Traffic Commission. On another occa sion, earlier,'he took the lead in raising funds in the community . to send three traffic officers to the Northwestern, Uni versity Traffic Institute, Evanston, Illi nois, and encouraged organizing a modern traffic division in the Little Rock Police Department Judge Harb. said the judge also can promote safety education, through the 50 32nd National Safety Congress, 1943 publication of courtroom proceedings. of educating traffic violators in the court This will be most effective if the judge room. will point out to newspaper reporters as* Judge Niblack described different things signed tq the court aspects \of the cases which may be done in the courtroom, such tried which have strong educational value. as lectures, use of posters, distribution of From the floor, the following view safety literature, etc., but that the most points were expressed: effective education can! be obtained by a a. In one city, the newspaper seems to think the judge is on trial and is not cooperative, thus closing that angle of approach to the judge. b. One judge~stated that he-thought the . judge had no business as a safety leader, offering as his reason that it might interfere with his judicial free dom. Judge Hart) and others assured discussion with the defendant regarding the unsafe acts committed. Where acci dents are illustrated on a blackboard, this provides an opportunity for all in the courtroom to profit from what is said and illustrated. From the floor it was suggested that the judge should be careful not to find himself discussing the reason for his de him that there was no basis for that cision. assumption from their experience. , Olliers suggested that the judge can c. Other judges stated that they felt the judge should take an active part in safety leadership. Several said that the judge should lead if other leadership were not available, but make a brief opening talk to educate all those present Frequently he is pressed for time, and this treatment may be pos sible when individual discussion takes too long. should remain in the background if The fourth subject suggested by Judge it were. Frey was the prosecutor's job in commu Judge Frey's next question to the panel was: "Should the court broadcast traffic court trials?" Judge Gorman for the panel, stated that nity safety. Mr. DeVoe stated'that the prosecutor can assist the judge in various activities in and out of the courtroom, and Bhould personally participate in the com munity safety program. With respect to the broadcasting of traffic court trials those coming to court, the prosecutor can started in Chicago eleven years ago. Al educate the defendant as to the factors though, theoretically, it is not a good prac involved, point out to him his rights, tice, it was undertaken because of a par and obtain all necessary information from ticular need for public education. It the police department and witnesses to served its purpose and has been discon prepare thoroughly for trial. tinued as the public is now sufficiently educated that the advantages are out weighed by the disadvantages. In the discussion which followed, it was reported that several prosecutors lave participated in police training schools and In the discussion from the floor it was have prepared instruction for officers on suggested that instead of broadcasting evidence and its presentation in courts actual trials, certain types of cases might which contributes to the total traffic safety be dramatized. Upon a show of hands, program in the community. no judges present advocated the broad casting from the courtroom of the actual In many traffic courts, the prosecutor has no part; land it was generally agreed trial of traffic cases. that the procedure as it affects prosecutors, The third subject discussed was that should be reorganized. 3 Panel Other H. JUD The point* "It w; Frey are t< Amer with ; portal are in "St widely actnrit use a that year a needs safe a strum "N< bread peopli reguls damaj court "Hi munit life oi near f "Vi volve law ' sense Vet, i law k dead with great comm slain "A catiot punis! result punis! functi w Street and Highway Traffic Section 51 Problems In Achieving Uniform Interpretation of Uniform Traffic Laws ' A Panel Discussion Panel leader: Judge Christ Holm, Hibbing, Minnesota. Other panel members were: Judge Edward C Fisher, Lincoln, Nebraska; Judge Thomas H. Maher, Detroit, Michigan; Judge James W. Hodson, Seattle, Washington, and Judge Edmund B. Smith, Kansas City, Missouri. The background of the subject was pointed out by Judge Holm who said "It was thought-provoking to hear Judge Frey of Cleveland say that traffic courts are today the most important courts in America. We should probably disagree with a view that one court is more im portant than any other because all courts are important ------ "Still, motor vehicles have changed widely and profoundly human habits and activities and everyone is affected by their use and operation. An instrumentality that kills 30,000 to 40,000 people each year and cripples another million certainly needs regulation so that its use may be safe and that it does not become an in strument of destruction. "Nearly all collisions result from the breach of some traffic law. Because some people disregard motor vehicle rules and regulations thereby menacing lives and damaging property, it is necessary to have courts deal with traffic law violations. "How the courts function in your com munity may determine the length of your life or the life and well-being of someone near to you. "Violation of a traffic law does not in volve a criminal intent. And most traffic law violators are not criminals in the sense of being otherwise bad citizens. Yet, if a person while violating a traffic law kills someone, that person is just as dead as if the killing were intentional or with premeditation. The loss is. just as great to the victim, his family and his community as if he were shot to death or slain with an axe. ' "A good traffic court should be an edu cational institution. Sometimes it must punish and even punish severely to get results and deter potential violators; but punishment is not always its primary function. "When persons violate traffic laws thoughtlessly or even in ignorance,i the influence of a wise court may inculcate in such persons, a new _attitude .of safety and of consideration for others. This is an educational process. In a democracy we need it in all fields. "Because traffic violators generally are otherwise good citizens, they should not, 'except in the most serious crimes like drunken driving, be treated as criminals. "On the other hand, the great number of traffic violations and the fact that traf fic violations can readily be classified, sug gest that there be some uniformity or at least consistency in their disposition and in the penalties imposed. "A comprehensive and forward-locking understanding of all the aspects of I suc cessful traffic law enforcement is to be expected of a traffic court, but it is also the duty of every citizen to acquaint him self with the essentials of traffic safety aud lend his cooperation to the orderly solution of this new and important problem. "Courts are generally no better than the people want them to be. And the short comings of courts, including such prac tices as 'fixing,** exist in most commu nities in direct ratio to the interest or in difference of their people. "Increasingly, as people become better informed of the hazards and considera tions involved in traffic, they will insist on protection of human life. "To achieve this result, the constabulary should be efficient and vigilant, the prose cuting officials honest and reasonably aggressive and courts impartial and com petent. "A community's court may be diligent and impartial and competent and yet life and property may be inadequately pro tected because a prosecuting official plays politics in his work or a police depart ment is not efficiently, conducted; 52 ' 32nd National Safety Congress, 1943 "Because ..the court is a judicial depart* b. The type ofthe possibleappeal has ment and its personnel- presumably, best , an effect oh uniformity, Tn 'mahy qualified, it should by example urgeVfaith- , states a trial de hovo is held when fulness and diligence upon others engaged thevappeal is heard. ;Thls,: :partich- in the administration of.traffic law. That. :; larly a JuryltrisJ* has^thfe/effect><of chain, like any other, is only as strong..' causing the defeiidant tp appealdue as. its weakest link, to; tbe ccmunon : experien 'th^ "Public interest should be quick to ; appeai - epurt ; will 'her- more lenient remedy and reinforce weak places.": than the original judgit Thus, in The first, question' by JudgeHolmto the panel' concerned the organization 'of courts with relation to the trafficenforce . jurisdictions wbei^e this is possible, the penalties may :hot be}tihiformlas compared with other jurisdictions. i; ment problem under urban conditions. Upon a s:tow of b^ds, a rnajority of judge Maher stated "In Detroit there the" judges indicated rlthey do hot have is a very large number'of traffic cases. definite penalty schedules;in all; cases; It In order to handle these with due. con-' was suggested by several, hqwever, that sideration, there are . two adjuncts to the' it would be hejpful if the' Committee;would court. One is a traffic violators bureau make a'stndy ofthissubject,ahdfihdont and the other, a system'of referees." . what the. average schedules are likeso Judge Hodson, describing the Organ-, that all. might lave the same thing as a ization in Seattle, said they have a traffic .soft of guide.'.'"'..' violations bureau, which handles a large .'Judge Holm's last question was: "What volume, of minor cases, but that most' is 'the function of the traffic violations moving, violations should be handled-in bureau, and how should itbesetup?" court for proper deterrent effect The second discussion subject pertained to organization of courts with relation to. traffic enforcement problems Under rural conditions. Judge Holm pointed ont how this differs from courts in larger.cities as follow^: . Judge Fisher said the itraffic viblatioiis bureau ' serves very osefal-purpose .where . the volume of casesprwwits a problem in t^ard' toi time availadile for hearing them.-- However,- thkeinift should' hear', as. nuiny': cases ! as; ppsj^k;';;-T1je violations human Included with rural courts, are' courts parking cases, but unlessthecourt issert- in small cities. The judge in this type of ousfy ondenhanned, the majority of other court has two spectaTfactors not present types of violations referred to tire"bureau is larger cities. One is the effect of'the should, be very: few, and' tire court.should judge frequently being personally ac watch them`carefully. ; quainted with the defendant He thus has In .the discussion from the floor - two the problem of changing his identity; as main points were etnpfaarized: far as the. defendant is concerned^ from a friend to a judge, when he takes the bench. The other factor is that he has sufficiently few cases so that he .can usu ally give them detailed consideration.-. : a. It is Usually advisable to hear most, if not all, moving, violation cases in court. 7- b. The court should]have complete con- The third subject was uniformity of, - - trol of the trafficyiolations bureau. fines, penalties and forfeitures. V ' ' ^Updn a show of loqds tp several^qnes^ - Judge Smith pointed out that this,is. tibns, the following; practices ':w^'--;in-most desirable between courts in 'the dicatei:';' .c same jurisdiction. Furthermore, It is highly - a. Most of the judges .have complete desirable and advisable between juris contrdL of ^eir traffic; violations dictions.' bureauifc v7:. .' From the floor the following sugges ' b. In some cities, ; policedepartment tions were offered: control ofthe-T^ is a. Although, there should be uniform .. dembd;hy''^^.orrastiick'.- . penalty' schedules, there should also e.:hi ho' case- did' tN--p^&?:-lenle;'^ie' be. flexibility tomeetspedal condi ' traffic ^ 'wlatibwf'7bhteitii;',. wh^wit. tions. .: V7 m/ '< /X'i-i StreetandHighwayTraflic Section THURSDAY MORNING SESSION ; October 7,1943 Pruidwip.- Hawy E. NsAt* Chief Engineer, Division of Traffic Safety, State: panment, uoramoos, u. De- ByT.j. sebum*/X-:A .' ' CitjTrafficKngiocer, Kansas City, Mo. i .. 'e -.**4. **li Early m l942, the Office of Defense Item No. 10; of this statement & the Transportation, tbronghits Division of one intis- winch ..we 'jure. primarilyjinter . Lm:"Tna9ort submitted a proposal ested for thebaUncepf tins discussion, consisting of two;: general' methods of ; ahtce ^It^ts . they one dealing; with| War trrfn*', ntmgpassenj^ transport ve-~ Traffic Control. This Is also thejifsetor - Udea to tiK utmostand conaerring 6rifc which was responsible for a direct iirapeal' < tbesemetbods from the Office ( Defense Transportation , involved the diicct exereiseSof authority to all mayor* to see tbit war tramjporta- vested fotbeDiretfor of the Officeof . tion administrators. traffic'' engineers, - br Executive police and other authorities trim foune- Order, of Decemberllfc 194LTbe second dijate action. wasastatement ofpolky madeto opera, to:Of triuirit vehkks and public author Trafficlight Delays itiesconcerned with.transportation ,and; Apparently Point 10 had not mttt.whh ' trafficcontrol. as mnch snccesa as most of the 3thers. ` Tbeabovestatenient contained twelve points, bat is not to he confused with a-; later statement of PolKy bn Wartune - Traffic" Control.: The former inefnded r '.npriSfie. recommendations, vrithregard to. staggri^fo^ ofbus serr ied elimination of transit stops/and mi- lar matters, and^a general statement con- cerningthe need:to thifttbe emphasis . from -mtbmiri>ilet;.to. ta as Theappealwas in the form of a letter caShtgr.attention to anincreasing i umber ofcomplaintsi-egarding time wasted fay' vrar workers and automobiles held| up by traffic Eghts. It was. accompanied^ by a pamphletentitled "FittingTrUffic (patrol to Wartime'Vui which a second 12-point program was presented: this fair a break down, of point ten in the original state- meat of polky. 1- tim major consideration in traffic regula Now, where does this leave ns? It tionjandthe timing of traffic control de brings us to- the pointwhere. we must vices. The major portion was devoted to, cbnrider ^what can best be done (jo. meet . economical business policies for an in- the needs, of war transportation in our v dnstty ' that suddeidy= found 'its position d<ssigti and operation of ; trafficcontrol. reversed fiomone in which itwasstrng-, The firstpoxht- deals with the lelimina- /g&njg to continne itsexistence to one' in ' tion of ^unnecessary signals; in fact, the:, itepuld . firtt. sixpoints are devoid to .the] subject its" existing^equQjnient? ..Of.^i^^^;and; t;:-'prrierto. group .'these "C ahnpxtu by:the together (at least for our use). making a .;fandSkiirity!: over':tbb ;.trinsit-: industeyas; pn^ianm Tins/ I (jbeUemv- ve^ m d Dirwtor by execntive order, brings the entire program into .beater bal-. faetbrainto; . ance/aiid gives'inore: emphasis ijo. other ..';dfe^:Tbey wereexteemely welcomed; by ineedfrvjfe^urm^^^ U'How--'' alloperatora, and-were eqtndly wdbpmrf evw. thi dnly demonstrates b-'pfrotlthat' over.; - wU mnst keep in mind in uA^pit^^g. ODT . s.Tvl . -. - i fmrfe'ril 'IV; 54 32nd National Safety Congress; 1943 Policies on War Traffic Control/' Each Point No.' 3 is the recommendation that city and each location must stand on its signal cycles be held to the minimum own merits, as determined by impartial heeded to accommodate all necessary engineering analysis, and no single blue movements, and suggests a range of from print can be prepared for overall use. 35 to SO seconds. May I suggest that in Many traffic engineers have inherited many traffic signals that were installed without the benefit of engineering analy sis, but determined by the number and weight of the requests of neighborhood groups. A large proportion of such sig nals do not, and probably never did, meet the minimum requirements of traffic vol ume or accident hazard to justify their addition to the saving.of time and con-, servation of transportation equipment, those interested in safety would probably favor these shorter cycles because they. create a better degree of observance. Far too many accidents have happened at traffic signals because drivers would not tolerate the long delays and went through the red light. use. The ODT policy presents an excel Points No. 4 and 5 are rather closely lent opportunity for men in this position allied and also bear a close relationship to renovate their traffic signal systems to the matter of short cycles. They are and remove the excess baggage. In fact, recommendations that time allotted to the one enterprising young engineer even green period should be accurately adjusted seized upon this opportunity to get an to the time required to move cross traffic additional appropriation of over $30,000 and that cycle lengths, or divisions of the to make the necessary volume studies at cycle should be adjusted to fluctuations of all signalized intersections. Needless to the demand during different periods of the say, this information will be of value to day. Certainly, qualified traffic authorities his office in many ways besides the elimi have recognized the' need of these adjust nation of a few traffic signals. Others, ments in the past. We have found that no doubt, have done the same thing in some streets, especially in outlying sec varying degrees. tions, have had tremendous changes in Flasher Operation traffic pattern which bad to be met by alterations in traffic control. Point No. 2, dealing with flasher opera tion of traffic signals, is merely a compro Continuous Movement mise applicable at points where traffic conditions warrant the use of signals for only a few hours of the day. There are three courses open to the traffic authority under such conditions. The first, continu ous fixed time signal operation is wastefnl of time which in wartime is wasteful of human life on the fighting fronts^ The second, complete denial of the benefit of signal control may be equally wasteful of human life and units of our transportation system on the home front Since our objective is the conservation of our trans portation system, a unit out of service because of unnecessary accident may prove as wasteful as several units de layed. The third, and reasonable, course is the use wherever possible of flashing operation which should give most of the benefits of safety without the delays in: The final point in'the allied field of traffic signal operation is the suggestion that isolated fixed time signals within one quarter mile of one another be coordi nated .wherever possible, to provide for nearly continuous movement of all ve hicles on a thoroughfare. This can be done in two ways, first by the use of an interconnected system under the direc tion of a master controller, and second, by the use of synchronous motors that will run at the saine speed as long as they are served by the same source of electrical energy. The set of principles just given relating to traffic signals represent sound traffic management as established years ago and certainly should not need a war to put them into operation. cident to stop and go operation. In many The next two points of the program cities existing* equipment will permit the deal with traffic police and police control use of flasher operation with only minor of traffic movements. Although I am a changes. firm believer in cooperation between the is cen Street and Highway Traffic Section 55 engineering and enforcement agencies, I hicles made left turns and this small do not believe such cooperation calls for number interrupted the flow to the extent' a discussion of police problems at this that traffic signal operation was breaking time. down. Of course, elimination of these Point No. 9 recommends the removal of stop signs from'all locations, where they are not needed to provide for the safe and orderly control of traffic. This again falls under the same general category as the group of suggestions relating to signal operation. Nearly all cities bad installed stop signs of questionable need due to pressure from neighborhood groups. Also many signs hid been erected that were left turns cleared up the operation.' This was possible because a rectangular grid section of streets permitted the left turn drivers to proceed in the direction of their destinations by using other streets in the vicinity and this small number did not impose too great a load on them. Such regulation would have been impractical otherwise and would probably have shifted the scene of the difficulty elsewhere. fully justified daring the days of un Later, with the construction and open- limited motor vehicle use but where need ing of a large war plant in the vicinity, is questionable under curtailed operation.. it was found thai trafSc volumes increased An excellent opportunity is afforded to tremendously on this grid section of ad reconsider all of these questionable loca- jacent streets, and analysis disclosed that tiobs and remove the regulation or sub one of the prohibited left turns was caus stitute ''Caution" type signs where no ing this increased volume of traffic. The more control is warranted. However, we turn in question was again permitted and should exercise caution in such a program,' proved to be approximately 23 percent of and not let our patriotism get the better the total movement. This case is cited of our judgment. The few stops that are primarily for the reason that it brings in made at an isolated intersection where many of the factors that must be con accident hazard exists would probably sidered during the periods of change occa not compensate for the loss in transpor sioned by the war. tation equipment resulting from the colli sion of two vehicles. And in addition, the Use of Through Streets possible loss of manpower through injury is certainly worthy of consideration. Next, the proper use of through streets is recommended. Such streets are pro The next point in the ODT program is tected throughout their entire length by one that to me is of extreme significance. stop signs controlling traffic at each cross In it, under the general heading of traffic street From the standpoint of conserva regulations are grouped several factors, tion of motor vehicles and tires, and to each of which might be worthy of an in eliminate unnecessary delay and accident dividual listing. Let us look at them to war needed travel, this is perhaps one individually for a moment First, restric of the most effective tools in the hands of tion of tarns is mentioned as a regulation the traffic authority. Much of the poten that will often facilitate the Sow of traffic tial hazard) that faces the heavy travel on through an intersection. Assume a hypo a war transportation route can be elimi thetical case which is made up of the nated by the proper designation and post history of several individual cases on ing as a "through street." Frequent sud record. Intersection designations would den brake applications' followed by rapid mean nothing and the case is assumed accelerations are thus made unnecessary in order to apply more possible condi and the only cost is that experienced by tions in the tune allotted. Under pre-war the much smaller number of drivers on conditions a signalized intersection had the cross streets in making a normal serv for greater than the required volume of ice application of the brakes followed by traffic to warrant signal operation--over a reasonable start into or across the major 17,000 vehicles in 8 hours with 34% of route the volume on. the minor streets--and The matter of vehicle parking and the about 80% of this movement was straight attendant debate about the division of through. Approximately 6% of the ve street space between the movement of \ 56 32nd National Safety Congress, 1943. traffic and the temporary -storage of vehicles is also worthy of very serious consideration. In approaching this prob lem it most be instantly recognized that the motor vehicle is of very doubtful value if all we can do is to ride b it, but it is also true that a half dozen vehicles parked at the curb may deprive hundreds of an additional lane of travel. Street widenbgs can often be instantly and economically accomplished by this simple regulation either applicable at all hours or for a few selected hours when the need is greatest Sometimes it may be necessary to provide adequate space for the cars removed in off-street parking lots, but this is a course that probably will be followed b the future, and we may as well let wartime^ needs aid us b post-war piannbg and development One-Way Streets An item that was not specifically men tioned as one of the ODT policies 6eems to merit some consideration. The proper use of one-way streets may serve a very needed purpose b the relief of congestion and the facilitation of war travel. It has been developed in the past that more efficient movement can be obtained when all vehicles are traveling in the same direction, especially on streets having an odd number of traffic' lanes. Costly acci dents are also eliminated, especially those involving pedestrians who find it much easier to cross a one-way traffic stream than one b which cars are bearing down upon them from two directions. In some cases streets have been designated as one way for rush periods only and sometimes the direction is reversed for different peak periods. This does not generally prove satisfactory and is extremely question able now because a great deal of super vision is necessary and ;pofice authorities are confronted with the same manpower problem that we face. There are two other pobts cited in the program as snbmitted by the ODT. One is the adoption of a system of war trans portation routes which probably should be developed b connection with the through street system. The other is the need for economical nse of traffic control equipment^ and certainly no one is willing to debate the need for such conservation. Substitute materials are opening up a wide field of study and much better equip ment will probably result from the short age of some types formerly considered standard. Finally, I would say that the applica tion of ODT policies on war traffic con trol Is merely a practical application of good traffic administration and that much aid can be derived from these policies by authorities who have been saddled with unnecessary or obsolete equipment, reg ulation or lack of. regulation, and who have not had enough public support to. make changes we all know are needed. That same detail b providing specific warrants for the use of the four types of traffic regulation as that devoted to the matter of traffic signals would no doubt make it even more valuable to those who have the responsibility of providing a well balanced program of traffic control. Di terns tires may quat prob Irani TJ can tram . for Thu repli mon Tt rant The; plae pete & crea and way of I In man stm freq fron quat pr p mak bg prof M ade< befi of*t way chat M tods exp* ther hou crea fleet mm Street and Highway Traffic Section 57 Fact Finding Studies lor Improving,War Transportation By HAROLD F. HAMMOND Director, Traffic Sc Transportation Division, National Conservation Bureau, Association of Casualty A Surety Executives, New York During wartime, transportation prob lems are constantly arising. The first was tires; the next is gasoline; and the next may be a shortage of vehicles and inade quate roadways. Aggravating these war problems, there has been a shortage of transit facilities ail along. The family car, upon which the Ameri can public so largely depends for daily transportation, has not been manufactured . for civilian use since February, 1942. Thus, no new vehicles are available to replace the ISO,000 being scrapped each month. To keep our present vehicles in good running order will not be an easy task. They are steadily growing older. Re placement parts are hard to find and com petent mechanics are still harder to locate. Employment at many plants has in creased to such totals that transportation and parking facilities, and even the road ways themselves, are no longer capable of handling the tremendous loads. In addition, many new plants, especially many of the larger ones, have been con structed in outlying sections, which too frequently are at considerable distance from worker residential centers, lack ade quate transit service, and are not serviced pr poorly serviced by major roadways. To make matters worse, manpower and build ing material shortages are hindering the proper maintenance of such roads. Many traffic control devices which were adequate in peacetime have been made ineffective or inefficient by the shifting of* traffic loads from ode street or high way to another, accompanied by war changes in peak hour flow. Most transit facilities are operating, today at capacity load. They cannot be expected to carry much more unless fur ther adjustments are made in working hours. And there is tittle hope of in creasing the . present size of the nrban fleet of buses and street cam, since the number of buses manufactured in the past 18 months has failed to meet even normal replacement requirements! ,,,, Gasoline shortage will continue to be a major problem for many months to come. And while some sections of the country may receive more, other sections are likely to receive even less than they are getting today. Problems Form A Challenge One or more of. these problems exist in every community.' One or more (ionfront every war plant of any size. They form a' constant challenge to local war transportation administrators and plant transportation managers. Those persons in the communities and in the plants, who are charged with, the responsibility of improving worker trans portation, must constantly be on the alert if they are to keep abreast of their prob lems and improve war transportation facilities and conditions whenever and wherever possible. This requires con stant spot checking of conditions in the field and periodic review of. transporta tion facts; in short, constant appraisal of all transportation problems in order to determine what, where, when, and how transportation improvements may be ap plied. The value' of fact finding studies can best be illustrated by several actual ex amples: A large aircraft plant was told by the War Manpower Commission to increase its employment of women from 30 to 60 per cent of the total within 6 months. The war plant transportation manager immediately appraised the effect this shift in employment would have from an em ployee transportation standpoint Through field studies, he found that only 8 per cent of the women drove cars to and from work, as compared with 47 per cent of the men. This fact immediately re vealed a new employee transportation problem. It showed that for every, one hundred women employed in place of one 58 32nd National Safety Congress, 1943 hundred men, there would be a loss of ment; (4) parking; (5) automobile main 39 passenger cars to the plant transporta* tenance. tion system. To offset the anticipated loss, die plant transportation manager immediately arranged for transit facili ties to- be added as necessary. War worker route studies include those showing: (a) the extent to which the ODT traffic control policies have been correctly applied; (b) physical condition Studies at another large war plant of signs, signals, and markings; (c) loca showed that it required an average of tions of accidents and congestion. 15 minutes for employee cars to travel from the main highway in front of the plant around to the parking lot behind the plant That 15 minutes alone was equal to the time required by the average em ployee to travel from his home to the The transit studies, either city-wide or for a single plant, include: (a) transit loads; (b) transit delays; (c) staggered hours; (d) the extent to which ODT tran sit policies have been effectively applied in the community. front of the plant Obviously, it produced many undesirable effects, both for the plant and for the' employee. Armed with fact al data showing the unsatisfactory condition, the plant transportation man ager was able to convince the plant execu tives to make improvements. These in cluded a new, more direct entrance to the parking lot from the front of the plant, which eliminated most of the 15-minute delay. Studies of a major transit line serving an important outlying war establishment showed that the anticipated transit load could be handled by adding eight more transit units. But eight additional units were not available. Therefore, operational improvements had to be made in the 42 units already operating, to produce addi Automobile movement studies appli cable for either the city or {>lant, include: (a) vehicle occupancy and group riding; (b) speed ;~(c) volume; (d) origin and* destination of worker traffic. Parking studies, particularly from a war transportation standpoint, are generally confined to: (a) studies of curb parking conditions created by a large downtown war plant; and (b) analysis of the plant parking lot. Vehicle maintenance studies, still com paratively new, are applicable on either a community-wide or single plant basis. These include studies of: (a) automobile age and maintenance; (b) maintenance facilities; (e) gasoline consumption and tire condition. tional round trips at peak periods equiv alent to the needed eight units. This ob Parking Lot Studies jective could be accomplished by cutting Plant parking lot analysis involves in the round trip time for each of the 42 units spection of the physical attributes of the from 100 to 80 minutes. It was achieved plant parking lot and observation of the by eliminating two-thirds of the stops, manner in winch they are used by ve minimizing congestion at two major in hicles.-The mechanics of making these tersections, and establishing a new off- studies include checking off on two check street loading zone, with improved fare sheets, items which give indications of collection methods, at the war establish the adequacy of the lot, especially as to ment design, location, and operation. Types of Pact Finding Studies. Fact-finding studies to improve war transportation are generally applied on a community-wide basis or for specific large war plants. County and state-wide studies are not uncommon, however. War transportation studies receiving special attention today may be divided into five general types: (1) war worker routes; (2) transit; (3) automobile move The first check sheet relates to the phys ical layout of the lot and ' contains 16 items to be checked as "true" or "false" in accordance with conditions observed. The second check sheet relates to the opera tion of the lot and contains seven items. All. items checked as "false" should be investigated further with a view toward correcting the condition. Specific uses for this parking lot analy sis include: (a) planning improvements Street and Highway Traffic Section 59 in the lot; (b) reducing delays and haz ards at the lot; (c) increasing the capa city of the lot-; (d) enlarging the lot to handle more cars; (e) planning new park ing lots. . The automobile maintenance facilities study involves an inventory of location, hours of operation, and types of services performed' by garages and service stations which might be patronized by war plant employees. It can be made for a single plant or for a group of plants. An inventory form is used to list all data pertaining to those automobile main tenance establishments which because of geographic location are available to the plant employees. There are two major uses for the study: (a) To assist employees, especially new ones, in locating garages or service stations which are conveniently located and are open at proper hours to perform necessary auto mobile maintenance work. It will be helpful to prepare and post in the plant, near the lunch room or employee entrance, a large map showing the locations of all auto mobile maintenance establishments, . numbering them to correspond to the number given each establish ment on the inventory sheet. (b) To provide basic data for a study of possible changes in working hours' of garages to permit em ployees to obtain automobile main tenance not possible now because of the service establishments being closed during the hours that em ployees are not working. Here is an actual example of this study in operation: Because of the shortage of skilled help and automobile materials and parts, one large midwest war plant, employing 20.000 persons, arranged with the local auto mobile trade association to request the service departments of local garages to give all possible preference and priority to tite servicing and repair of vehicles be longing to the war plant employees. In turn, the war plant employees were noti fied of. this arrangement, and a list of co operating garages was posted for their guidance. Accident Studies The war worker route traffic accident study is conducted primarily to deter mine traffic, accident causes and proper corrective measures at locations on plant property or on public thoroughfares used by war workers. It should be remembered that a traffic accident involving plant em ployees may not only rob the plant of valuable manpower, but results in tempo rary or permanent loss of a car that may be transporting from 2 to 5 employees. Following the preparation of the ostial collision and condition diagrams for the accident location, these questions should be considered: (a) Are-the-accidents mused by s physical condition of the road or adjacent property, and can it be eliminated or corrected? (b) Is a blind corner responsible? Car it be eliminated? If not, have ade quate measures been taken to warn the motorist? (c) Are the existing signs, signals, amd pavement markings doing the job they were intended for? Is it pos sible that they are causing acci dents rather than preventing them? (d) Is traffic properly channelized to minimize the occurrence of acci dents? (e) Would the prohibition of any sin gle traffic movement, such as pro hibition of a minor left turn move ment; prevent accidents? (0 Can part of the traffic be diverted to other thoroughfares where the accident potentialities are not so great? Detailed presentations of these three studies, along with eleven others, are given in the "Wartime Transportation Survey Manual" now being published by the National Conservation Bureau as a comprehensive followup on the several employee transportation conferences and employee transportation booklets which were jointly sponsored and published by the National Association of Manufactur ers and the National Conservation Bu reau. Here is a special point to keep in mind 60 32nd National Safety Congress, 1943 when conducting {act-finding transporta tion studies: The rapidity with which transportation problems arise and the consequent urgency for their solution will seldom permit lengthy or detailed studies. Short cuts and spot checks are therefore neces sary. Shorter traffic samples and more general observations are in order. In peacetime, a speed and delay study of a major route might consist of detailed observations on each blodc and at each intersection, requiring days to complete. Tins sort of study under war conditions must generally be made in a few hours, because of limited manpower and war's demand for quick results, conditions which automatically limit the study to ob servations of overall speed, and only a spot checking of the major delay points on the route. Six Important Questions Here are six important questions for your consideration: (I) Do you know the bottlenecks in yonr local or plant transportation system, and are you taking positive steps to eliminate them? (2) Are yon taking positive measures to correct accident locations which are robbing you of valuable work ers and automobiles? (3) Have you estimated how many more persons In your plant or community will require transporta tion three and six months from now? (4) Have you considered how many registered automobiles in yonr plant or city will be out of circula tion six months from now? (5) Have you developed! a program to compensate for automobile losses: by increasing transit capacity or by group riding? (6) Do you maintain a detailed plan of remedial steps that should be taken if and when a sudden trans portation shortage should occur in your plant or city? Think these over carefully. The an swers may help you greatly to keep workers on their jobs in the industrial plants upon which we depend for the weapons and other supplies we need for victory. :------:--:--'-- X Providing Off-Street Parking and Terminal Facilities By D. GRANT MICKLE Automotive Safety Foundation, Washington, D. C. We are inclined to forget that there were parking and storage problems be fore the day of the automobile and, there fore, blame the conditions today entirety upon the use of motor vehicles. The horse and buggy and the horse and dray required much greater storage or parking space than does the automobile or truck and their maneuverability was certainly much inferior. The contribution the motor vehicle has made to the problem is that people have become more mobile. We can gather from larger areas and, therefore, in greater numbers. Time of travel is also a factor. And finally, our general prosper ity has increased so that more people can own their individual transportation. The point is, therefore, that the parking prob lem is not an isolated issue, but an inti mate part of providing fast, cheap, con venient highway transportation service. In a thorough study of the entire park ing problem, consideration must be given to the whole urban problem of land use, decentralisation, blight, and other over-all problems of the nrban dilemma. However, the scope of this particular; discussion is confined to means of providing off-street facilities. The two principal! concerns are financing and legislation. Let ns consider means of financing facilities first. There are three general categories into which we may divide the means for pro viding off-street parking facilities: pri vate, privately operated public facilities, and public facilities. The private, facility I Street and Highway Traffic Section 61 is the one providing parking space to oc cupants of given buildings and is either given as an inducement to rent building space or is charged for on a monthly or annual basis. The characteristic of this type of facility is that it is not open to the general; use. The second category, the privately operated public facility is today providing the largest capacity of off-street parking in the downtowij districts of cities. Pay ment for these commercial facilities is made in several ways: (a) direct pay ment by motorist; (b) payment by busi ness firms upon purchase of goods, or (c) combination of (a) and (b>. There are relatively few cities which provide the type of parking fisted in the third category, namely, municipal facili ties. Some cities have provided off-street parking as a free municipal service, others finance such lots through parking meter revenue and others operate them on a self-sustaining fee basis. Temporary Use of Land Public lots privately operated must col lect fees for parking sufficient to pay the rent .(generally about the amount of the taxes), operating costs, license and in surance fees, and a sufficient return to compensate the operator. Unfortnnately most lots of this nature exist only until such time as the land can more profitably be used for some other purpose and, therefore, are seldom unproved or beauti fied beyond bare essential needs. Because the lots become available through busi ness failure or some other similar cause, they are not located or arranged in any planned manner for providing the most convenient off-street parking facility. Municipal ownership, on the other hand, offers different opportunities for financing. The land may be city owned through tax delinquency or gift. Or it may be a parcel remaining from some previous public works project In most dries today there are areas or fringes around the central business district which are no longer pro ductive of income, particularly under the' existing tax burdens. Moreover, it is not unlikely that examination would show in most dries that under normal times there is an excess of business Door space. Under these conditions, it might be well for cities to take these plots of ground out of competition forever and provide land scaped open areas fringing the business district and that conld be used for parking purposes. Thus, the fee for parking wo uld not need to indude high tax costs, but would be confined to improvement and operating costs. And, on the theory that the whole dty would benefit, a certain part of the costs might be charged against the general tax levy. The private parking accommodation is generally financed as a part of the busi ness activity to which it is attached. Whether a fee is diarged or not, at least a part of the cost is bome by the hotel, department store, office building or other establishment whose business directly benefits. A direct return on the invest ment is generally foregone because of an ticipated increased business generated by the convenience of the parking facility. Therefore, it is seen that parking can be provided through private enterprise or by action of government In accordance with traditional American custom, it is probable that private initiative will for the most part provide adequately for the offstreet parking demand. However, in order to assure proper appearance, adequate operating safeguards, and proper arrange ment of lots, the profit from reasonable fees may be so limited that government operation would become necessary in the general public interest. Municipal Experience Interesting experiments in trying to solve the off-street parking problem through the jqint effort of business men and by means of municipal operation are described in reports from Los Angeles and Kalamazoo, Michigan. The p.roblems faced in the Los Angeles area and some of the means for working them out were described by Mr, Huber Earl Smutz, City Planning Director for Los Angeles in a paper delivered in 1940. He stated: < "The trend toward the development of new business enterprises, each with its own off-street parking facilities combined with the ever-increasing congestion and reduction of'curb parking facilities, has 62 32nd National Safety Congress, 1943 had a telling effect upon old established of a large area which it is proposed be business areas. Those businesses most deeded to the city and then operated as a vitally affected by this problem are those parking lot by the Chamber of Commerce located in the Central Business Districts. on possibly a lease basis." Confronted with growing inaccessibility, business has had to make a choice be* i Kalamazoo Plan tween two alternatives: either move out of In Kalamazoo, Michigan, a municipal the congested area or stay and fight for parking lot of 390 car capacity was opened its existence. in the fall of 1939. The cost of purchasing "The cost of fighting has been terrific the land, removing buildings, surface treat in most cases and consists largely of ing the lot and providing driveways--ap either acquiring costly hmd for their own proximately $60,000--was assessed against parking facilities or of. validating cus that property judged to derive the greatest tomer's parking checks from private auto benefits. In reporting upon this venture. parks at tremendous outlay each year. City Manager E. S. Clark states: One concern in our Central Business Dis trict paid over $25,000 last year to auto parks for customers* parking checks which they validated, and one concern in Holly wood paid out even a larger sum. It is estimated that over $150,000 was paid by downtown business men for validated parking checks last year. "It must be understood, however, that all of the benefits do not accrue to this assessed district. In determining the dis trict to be assessed, a study wad made by our assessor with a group of twenty-five or more interested citizens. When it was definitely decided which properties should contribute, to the purchase and develop "A limited inquiry indicates that mer ment of the lot, then it became necessary chants who arrange for validation of cus to determine in what proportion the vari tomer parking on privately owned lots ous properties should be assessed. With pay more than twice the amount per car this same aid, the assessor decided that paid for customer parking by the mer there should be three zones known as chant who owns and operates his own lot. A, B, and C, knowing tliat zone A would "A most unusual method of reducing receive more benefit than zone B because these handicaps to the minimum has been of its location; the same would apply to developed in Hollywood by their Cham B and C when the zones were established. ber of Commerce. This `Hollywood Park ing Plan,' as it is called, involves a uni versal validation scheme enjoyed by all merchants and parking lots who subscribe thereto. "It became apparent that ground area and assessed valuation each played an important part in the attempt to arrive at an equitable assessment, because in some instances we had a high structure "The Chamber of Commerce acts as a with a very small ground area; in other central clearing house and sells 5c parking cases there was a large ground area with stamps to the merchants who validate an inexpensive building. After consider parking checks by placing stamps on-the able study, the assessor arrived at the de back as purchases over $1.00 are made. cision to place 50 per cent on area and 50 The stamps are later redeemed by the per cent on assessed valuation after first Chamber of Commerce from the parking determining the amount to be assessed lot operators. Incidentally 62.7% of all against each zone. shoppers come to Hollywood by private autoc^here being off-street parking facil ities for over 25,000 cars adjacent to the shopping areas. "This parking lot was developed pri marily for the business in a fast distintegrating area, principally because of the lade of parking accommodations. The "Although this scheme is a great im underlying thought of'the owners, as well provement over the individual validation as of the city officials, was to stop this method operating in the downtown dis disintegration, increase the valuation, and trict, the Hollywood Chamber of Com at the same time retard decentralization. merce is now working on a proposition In order to operate this parking lot to for the acquisition by assessment district the best interest of the property owners, Street and Highway Traffic Section 63 who are paying the first cost of property and improvements, there was set up, by resolution of our City Commission, an advisory board to the City Manager--a committee of five property owners hav ing property within the assessed area. "The city and property owners, having the same purpose in mind, made certain rules for the use of the property; the greater the number of shoppers, the greater the value of the lot. (When I say shoppers. It is my thought that any in dividual who calls on doctor, lawyer, den tist; real estate dealer, etc, is considered to be a shopper.) This committee, with the City Manager, decided that a two-hour parking limit should be established as free, the next hour to be 10 cents and each additional hour 5 cents. We keep three attendants during the hours from 8:30 a.m. to 6 p.m., the hours between 6 pjtn. and 8:30 a.m. being free. "One year of experience indicates that the income will slightly exceed the cost of attendants. Any other expenses, such as lighting, water, or other maintenance, will have to be borne from taxes. In our case this is justified by the stabilization of property value or increased valuation. Another thing we have found is that less than 15 per cent of the users of this lot pay for parking." Zoning Requirement Another method seeking to provide ade quate off-street parking space both in business districts and residential areas is by means of zoning legislation. A recent amendment to the Arlington County, Vir ginia, Zoning Ordinance provides: "In* any residential, commercial, or manufacturing district where any lot or plot is used for any one family dwelling, duplex; semi-detached dwelling, apartment house, hotel, or any other single or multiple family use, garage space or vehicle parking space shall be provided on such lot or plot, together with means of ingress and egress thereto. The garage space or vehicle parking space required shall be of sufficient area to accommo date one automobile or vehicle for each family unit or apartment contained on such lot or plot "In connection with every parcel of land in a manufacturing district on which is conducted any manufacturing use per mitted in the district, there shall be pro vided space for all the vehicles used di rectly in the conducting of such use and, in addition, there shall, be provided space of not less than two hundred (200) square feet for the standing of not less than one vehicle for each two persons employed or intended to be employed on such parcel of'land, together with ingress and egress thereto. If such vehicle standing space is not provided on the same parcel of land on which such use is conducted, it shall be provided within a distance of not to, exceed four hundred (400) feet from the' main entrance to such use, and such vehicle standing space shall be deemed to be required open space on the parcel of land on which the same is located and shall not thereafter be reduced or encroached upon in any manner, except upon approval by the Board of Zoning Appeals in either of the two following circumstances only: (a) Such space may be reduced by the amount to which other similar space, similarly situated, and subject to the same conditions as herein specified for such space in the first place, is provided for the use to which it is appurtenant. (b) Such space may be reduced by an amount in proportion to any reduction in the number of persons which can be em ployed on such parcel of land." Similar regulations apply to theaters, auditoriums, hospitals or other places where people may congregate in numbers. For several years past the Federal Gov ernment, through the Public Roads Ad ministration, has recognized the impor tance and interrelationship of terminal facilities and the general street and high way pattern. The Defense Highway Act of 1941 pro vided in Section 11 for the expenditure of Federal funds when matched in statu tory ratio by"the States for the construc tion of off-street .parking facilities to relieve congestion on the strategic net work. A condition of Federal participa tion is that the State permanently pro hibit parking within the roadway or street. Atso, it must be determined that the Federal funds required for the park ing facilities will be materially less than i rv* * ;: v i; r- 'i ?. . > 32nd National Safety Congress, 1943 those required for widening or relocation of the highway, and that substantially as great benefits will result Anticipated large increases in urban traffic will, obviously make it impossible to handle the parking problem at the curb; hence an extensive system of parking terminals will be a necessary feature of post-war planning and highway transpor tation development Surveys, plans, ac quisition of land where needed, passage of enabling legislation can he .done now in preparation for post-war construction. Now is the time to start if we. are Jo hope tQ rescue cities from their present plight Re-Routing and Rescheduling By ROBERT A. MITCHELL Transportation Director, Philadelphia Metropolitan War Transportation Committee, Philadelphia Many decades have passed since the urban areas to incite. an<| promote .their workman lived with his work, when the development. Others prefer to avoid this source of his livelihood was no more dis development period, and await the de tant than an adjacent room, a nearby mands of the populace for transportation guild hall or, at most several squares service. Some urban routings result as a across a small village. necessity from the routings of adjoining Progressively through the year the suburban areas. whereby passengers are manufacture of goods requiring many delivered to focal points along the cities' skills, and the centralization of industrial boundary requiring a network of routes power, have resulted in districts of in throughout the city for their distribution. dustry where all employed therein could. In'cities of large areas and densely not find residence. populated centers, lengthy journeys have From this condition we find the de been reduced by construction of elevated velopment of purely residential areas, and subway high speed routes. some nearby, some quite distant from the The costly construction of street rail source of livelihood. This divorcing of lines has of necessity limited their de the bed from the bench had its depend velopment to the more thickly populated ency entirely upon the facility of traveling districts and in recent years supplemental between the two, and as'transportation and feeder routes have been developd al improved, the number who relied upon it most wholly for bus operation. increased, and distances expanded. Today In most all cities, transportation rontes, most cities have very efficient mass trans whether street car, bus or high speed, are portation systems. designated and. authorized by municipal In many cities, competitive transporta or commonwealth franchises, thus pro tion is still operated on the same or ad tecting both the citizen and the invested jacent streets; in others the operation interests against indiscriminate and unreli and ownership is municipally vested; able service. while in still others, corporate interests have combined the several routes into one Scheduling operating structure. Whatever form of operation prevails, the obligation persists to provide a ready means of transit over convenient rontes where and when re quired, not only for habitual daily traveling between given points, but also to provide adequate service for unusual requirements such as mass gatherings, at stadia, amuse ment parks, etc. Some franchises stipulate the .running of a car over a route each twenty four hours, to avoid charges of abandonment. So far as I know this requirement is the nearest attempt on the part .of regulatory bodies to specify the amount of service to be operated---the frequency of service being the problem of the operator, within the bounds of profitable operation. Econ Some companies have adopted a policy omy of operation is necessary for a transit of extending routes into undeveloped sub company to live. In some cases of mttnic- A .4 B -0 t i 1 i i Street and Highway Traffic Section 65 ipal operation this is not true and the tory frequency for a 41 passenger bus but taxpayers are called upon, to make-up the far from adequate for a 2S passenger bus. deficit The scheduling of efficient services is controlled by four major factors: a--load demand; b--profit to the operator; t-- public reaction, and d--competitive serv ice. A contrast of scheduling confronts the operator. Employes of commercial and industrial centers move in great numbers within a short time bracket whereas resi dents of sparsely settled areas move in small numbers over many hours. The riding public however, expects service to be available when they want to ride. The result' is that during the greater part of the day. the minimum of service provided is considerably more than adequate, while for a relatively short period the maximum operable service is ofttimes inadequate, and not always comfortable. In suburban areas, a 15 or 20 minute schedule de pendably operated, is accepted by the rid ing public, whereas people in congested areas expect a 2 or 3 minute service. The utopia of transportation officials* dreams, a pay load on every vehicle on every trip, is impossible of realization. It is only hoped the public will be satis factorily served by a sufficiency of service that will assume a profit to the operator. While transportation rights lie with vested authority, the voice of the public is often heard, and the fewer appeals to this body, the happier the operator. Therefore it behooves the operator to provide a service with reasonable fre quency. The mechanics of scheduling depend npon: 1. The standard of service to be sup plied. 2. The availability of equipment of dif ferent capacities. 3. The availability of manpower. 4. Labor's requirements for minimum day's earnings. 5. Direction and volume of travel at maximum load points along routes for week days and for .Saturdays, Sundays and holidays. For lines of heavy travel, different schedules are usually provided for week day, Saturday and possibly several alter nate schedules for Sunday. The particular Sunday schedule operated being depend ent npon weather and public attractions. Furthermore, different schedules for summer and winter are usually prepared, to provide for seasonal load fluctuations. To maintain the standard of service provided by these schedules, constant vigilance must be exercised to promptly recognize or anticipate changes of de mand. Also an adopted schedule must be closely followed else loads will be un evenly distributed. Street supervisors can do much to help; periodic passenger counts and trainmen's way bill inspections also give indications of adherence to standards. Authority should lie with the street man to short cat routes or to order into service' additional unscheduled ve hicles, termed "wildcats" or strippers. Frequent Service Necessary These items have become common In pre-war days, the' nemesis of the public carrier was the private automobile. In nttmerons localities steam or electric railroads offer a more refined service at practice of street transportation operation and by their practice, service reached a high degree of efficiency. * Then came the war. commutation rates that are seriously com petitive for limited destinations. To com bat these a frequency of service had to be offered that influenced rather than dis couraged public transit patronage. It should hardly.be necessary to review here the many changes that ensued--the mighty increase in- industry, the influx of workers to metropolitan centers, the hous ing shortage that pat two or three fami Frequency and adequacy of service lies into single homes, the shrinkage of are not necessarily- synonymous but they private passenger car usage, the roundare controllable to a certain extent, by the-clock working schedules, the dearth vehicles of different capacities. A seven of new vehicles and replacement parts, minute headway may be quite a satisfac-. the diversion of manpower from so caMed 66 32nd National Safety Congress, 1943 unessential to essential jobs (or for higher earnings), the circulation of surplus earn ings--shoppers, travelers, -etc.,--all mate rially adding to the problems of transit operation. , manpower. A great deal'of credit is due the public utility commissions; who have cooperated wholeheartedly in ; approving these emergency changes. ' ' ! A large, percentage of the vehicles New Transit Demands, operating over long routes 'are bring u- . The location of new industries in many cases was determined by available ground, by railroad freight facilities, and by raw material and power supply sources, rather than by availability of labor or housing or facility of transportation. The flexibil ity of bus operation probably lessened worries of moving labor but failed to con sider a limitation* to the supply of these vehicles. For outlying new plants, the private auto was expected to carry the load. (This was before rubber shortage and gasoline rationing discouraged their fullest use.) Also many workers were turned back before reaching the end of the line with a less frequently scheduled shuttle service provided on the lighter ends. This permits the maintenance of a more frequent - schedule where, the load is heavier while inconveniencing only a small percentage of the passengers. As a rule this is only done during morning and afternoon peak periods and approxi mately half of the vehicles are short-cut with the others going the'entire distance. Approximately 1,000 vehicles i and' 17)$ million .vehicle miles annually are being saved by this procedure. without autos and car pooling was not 2. In larger munripali^es, the peak always Satisfactory. loads on some routes do not coincide0 with Then transit companies were called those on others. Where this condition upon to provide service. Without a sur exists vehicles can be interchanged from plus of vehicles and unable to procure one route to the other. Such relief .can more and beset by mechanical failures and be obtained in many localities if they manpower shortages, the operators 'were would adopt a program of "staggered" $- faced with a serious problem. Not only hours among the businesses and industries were the many long established routes on certain transit routes so as to allow overtaxed by increased loads, but `also this interchange of equipment. the operators were required to provide 3. A well designed "staggered" hour new service. program can do a great deal towards im ODT officials early in the war recog proving scheduling ODT says that it has nized the serious situation faced by tran saved 3,000 vehicles and 22 million vehicle sit companies and with the advice of rep miles annually. Airextremdy high peak l b resentative transit officials developed a load requires the use of all; available y: program containing about a dozen things equipment for only a short period of time. that could be done with the help of load If this load can be spread over a period' M- communities to alleviate the situation. of time long enough to allow the use of One of the most effective of these was each piece of equipment at least twice, the "staggering" of working hours. Elim then approximately one half the number ination of unnecessary stops, re-routing of vehicles will be able to carry the and re-schoduling were other suggestions same amount of traffic. On the other in the program designed to increase the hand, an around the dock "staggered" !; efficiency of the transit system. A recent hour program which produces; a heavy ODT report states this program is con load approximately twenty-four hours a serving nearly 200 million bus .miles an day (and this is the case in several cities) nually and' added equivalent of 14,500 creates a traffic maintenance | problem. street cars. The vehicles have to be in use so often that no time is found to garage; them for Tricks for Saving Miles repairs and maintenance. The routing and scheduling of transit The new "staggered" hour program in equipment encompasses many tricks of Philadelphia reduces the. 5 P.; M. peak the trade which are being used to make load by 56 per cent, placing part'of .it up for the lack of sufficient equipment and at 4:30 P. M. and part of it at 5:45 P. M; Si ah cai up thi a 74 sa* Ave co to oti trs us se lot co ro to fr< of in El ro se foe tb 4 foi tet ro en se ret th afl tb tb ca th Tl ph by of fo ah in< Street and Highway Traffic Section 67 Since the average route is covered in for the removal of all bus lines paralleling about one hoar this allows the vehicles rail service or serving the same area acid carrying the early load to return and pick concentrating as much traffic as possible up the later load. Full compliance with on rail lines which are more economical this program will permit 75 vehicles to to operate. The curtailment of non- carry the passenger load now requiring essential or duplicating services is ac 746 .vehicles. Some of the 71 vehicles counting for a conservation of. 58 million saved can be continued on the central vehicle miles annually and more than , district routes to reduce the load per 1.200 vehicles. This, of course decreased vehicle and others can be placed on other the headways for the rail lines assuming, congested routes serving war industries. the increased traffic and necessitated a Direct Service change in schedules. No doubt, transit companies have in 4. Direct service by bus and street cars augurated a number of plans to conserve to robtes serving industrial areas is an gasoline and tires, such as more fi;eother effective , way of providing better quent and carefnl maintenance 'of .tires' transportation service with the minimum - and engine parts, more extensive training use of -equipment. Special bus and rail of chauffeurs, garaging of equipment services are provided from a number of locations in the city, where workers can concentrate, to the terminal of the main route during the hours workers-are going to these industries or returning home. nearer to the ronte, and the substitution of equipment A considerable, amount of gasoline and rubber was saved in Philadelphia by the two latter methods. Sizeable lots were As an example, trolley route No. 37 obtained near the terminal of bus routes' from Philadelphia transports thousands and except during extreme winter weather/ of workers to and from large war plants the buses not in use during off-peak hours in Chester, Penn. From its terminal in were stored on these lots until they were Philadelphia, special, buses and trolley needed. This saved running them to and routes fan out to five locations in populous from a regular car barn or garage which sections of the city to give special service probably was some distance away. for employes of these-plants living in The elimination of bns routes duplicat those areas. . ing other services, produced a surplus' of Tins practice is similar to that followed buses many of which were extremely old, for many years to provide service to the using a great deal of gasoline and re terminals of high speed rail lines and rail quiring extra heavy tires. The newer and roads. tighter' buses were selected' from the 5.- Altering the interior of vehicles to enable them to accommodate more pas sengers has been tried. This may seem remote to routing or scheduling, but any thing which changes the load factor will affect the number of vehicles and thus alter the'schedule. All of you are familiar with the "standsit? seats tried out' in the street cars in Washington, D.. C. Apparently they did not meet with, public approval. The capacity of subway cars in Philadel phia was considerably increased, however, by the removal and adjustment of some of the seats so as to permit more room for standees. Conservation groups and substituted for the older buses on the routes remaining in operation, thus saving considerable gasoline and rubber and reducing the maintenance problem. Re-routing and re-scheduling are not original policies put in effect to correct transportation problems brought on by war conditions; They are the measures adopted by transit operating divisions to meet these demands, such as changes in traffic, equipment and manpower. The actual mechanics of re-routing and re-scheduling is a job for transit officials and they need ho help from the public or public officials. Our part in 'the program consists only of making plans for a more The Scarcity-of gasoline and rubber has efficient distribution of the passenger load . also necessitated certain changes in rout and seeing that these plans are supported ing and scheduling. In general, this called by the public. 68 32nd National Safety Congress, 1943 THURSDAY MORNING SESSION October 7, 1943 Group Session on Public Safety Education Traffic Education Association The Public Safety Education group held The officers and directors of this newly ' an organization meeting on Thursday formed "Traffic Education Association" morning to form a permanent association, are as follows: to be known as the "Traffic Education Association." W. Burke Smith of .Con* President--W. Burke Smith, Hartford, necticut . presided and served as acting Connecticut chairman while complete and detailed dis cussion was carried on and a constitution was adopted. Vice President--Charles * Portland, Oregon. D. 1 VJbberts, The declared intention of the organiza Secretary-Treasurer--Mrs. Elinor Kir* tion was for "the advancement of traffic wan. National Safety Council, jChicago. safety through the dissemination of fac tual traffic safety information, the inter* change of ideas between members and the establishment of a central point of refer* ence and union for its members." The idea for such an association had been discussed at the public education sessions of the 1942 Congress and a' tem Directors: George Lowe, Pennsylvania; M.- L. WiSeere, New Hampshire; Barney O'Donnell, Ohio; Sidney King, Oregon; Leo Welch, New Jersey; Atine Stainer, Utah; W. A. Huggins, California; Bert L. Woodcock, Iowa: and Hal Bourlaiid, New York. e. I porary secretary had been appointed and The public safety education sessions had asked to draw up an appropriate consti attendance at all sessions -this year far tution. The association will be national in in excess of anything that had been con scope and will not be particularly affiliated templated and there is much enthusiasm with any organization in the. field of for accelerated public safety education safety. programs in the future. THURSDAY AFTERNOON SESSION October 7, 1943 ` General Session Summary o! the Section's Activities Report Presented-by HARVEY D. BOOTH Secretary, Street and Highway Traffic Section *% This report of the activity and,plans of the Section and its several committees can touch only the high spots, but will acquaint you with the overall program which has been carried out during the year now ending, and also give you some indication of the work ahead. 1. An activity of importance, affecting all committees is the plan ((or package programs to be prepared for! community safety councils and other groups. Prac- tically all committees will have animme* ' diate job in this respect, and at the exeat* thre committee meeting this-morning the i V J Street and Highway. Traffic Section , 0 , need for speed in the preparation' of such .materials and programs detailing step-bystep use. of them was emphasized. These programs will deal with stich subjects as pedestrian, safety, bicycle safety, intoxica tion and chemical tests, traffic courts, etc. 2- Report of the Standing .Committee on annual Congress Program. Hie pres* ent Congress is the one best report of rite ' Committee which bias functioned under Walter Martin's guidance during the past few months.. Burton Marsh, your chair man for the next year, can be counted on to give you the very best possible. 3. The Standing Committee on Traffic Accident Records, furthering the-work started by the Council, in 1924, has been developing plans for the wider use of acci dent records in selective enforcement; and this project will be continued. 4. The Group Committee of City and . State Police has taken the initiative in de veloping the program of their own group for the Congress, and they have had ex cellent sessions throughout the three days prepared from data obtained through the study. . 6. The Group Committee on Traffic Safety Engineering has cooperated in the study by the Project Committee on. Dimout Traffic Safety, and in: developing features of the Congress program. They will have especially important tasks next year iu cooperation with the Committee on Post-War Traffic Safety Planning, since traffic planning is one of the essen tial functions of the traffic engineer's job. 7. The possibility pi reorganizing ijhe Group Committee on Public Safety Edu cation is being considered. There is the possibility that this committee may be of value in coordinating promotional activi-. ties of the various - committees of -the Section, and 'tire Executive Committee authorized General Chairman Graham Cole to study the functions and' possi bilities of the- committee and detemfme whether or not to set up such committee for the next year. of the Congress. The `Committee is ex pected to do another good job in .advising on materials for the package program, as well as the regular. Congress program and promotion of attendance job. 5.' The Group Committee on Traffic Courts has made phenomenal growth dar 8. The Study-Promotion Committee on Pedestrian and Bicycle Safety has been cooperating with the Armed Services on the promotion of safe walking among members of the Services on leave, and a leaflet for the Army has been printed and is being distributed. in quantity to' the ing the year. Close and effective coopera Sixth Service Command. One of the. main tion with the American Bar Association problems now is the tangle of pedestrian and various local bar groups has been . laws and a sub-committee has been a definite activity. Ten traffic court con authorized to deal with specific changes ferences or important participation in needed--recognizing that there can be no other bar conventions have been held solution of the pedestrian accident prob during the past year, including meetings lem without enforcement Also authorized, in Omaha, Memphis, Houston, Illinois was a subcommittee ou promotion which State Bar Convention, Minneapolis, Los will work closely with the American Angeles, San Francisco, Portland, Seattle^ Automobile Association in getting adop and Cleveland. Iu addition, there has been tion Of the proposed uniform pedestrian participation in several State Bar Con ordinances when, they have been prepared. ceptions and ..in more than a dozen local Another project planned is a study of just groups-and areas by Jim Economos and what is happening in accidents to chil other officials of the Junior Bar Confer dren in various communities. The acute; ence, in dose Cooperation with onr com shortage of batteries for bicycle lights is mittee. The Committee has mapped plans creating a .serious problem both among for a considerable "number of traffic court war workers and students who hare to conferences during the next year, in which use that type, of transportation during the ' they expect to have the continued co operation of .the' organized bar.' A com prehensive study of the; participation of prosecutors in tiie.trial of-feraffic.cases is hours of darkness. The' Committee has adopted a resolution .calling upon the! War Production Board to .make more batteries. available; and throtigh channels .which. now under way, and a report will be will insure their getting into the hands of 70 32nd National Safety Congress, 1943 those who need them for essential pur poses. 9. The Study-Promotion Committee on Tests for Intoxication has. a very heavy program ahead, as the following scbe.dnle indicates: (a) A.legislative program, with recommended bills, to be .prepared and adoption promoted at next sessions of various, state legislatures, (b) Much em phasis will be given to public education phases of the work, with particular co operation in developing the package pro gram. (c) Completion of the manual, on chemical tests has been delayed because some of the medical experts who bad chapter assignments for the manual-liave entered the Aimed Services,'but as much as possible will be done so that it may be available soon after the war ends, (d) The Committee will also cooperate on specific projects in cooperation with the Committee on Post-War Traffic Safety Planning. 10. The `Study- Promotion' Committee on Winter Driving Hazards has produced a number of publications on winter road maintenance. One was a booklet by that title of which 7,800 copies were distrib uted in the snow belt. A six-page leaflet, "If You Drive This Winter," was pre pared and 226,000 copies were distributed. Wide use has been made of the radio, newspapers, and periodicals. A number of new publications are now being prepared and every attempt will be made to meet the need for safeguards against winter accident hazards which are greater now than ever before. 11. One of the most active committees of the Section was the one..;which the Executive Committee authorized one year ago--that on Special Enforcement Prob lems. More than 6,000 copies of a special report outlining various problems was prepared and distributed. There was wide promotion of newspaper and magazine publicity on special enforcement prob lems. Information concerning the proper use of the Manning Table and the Re placement Schedule was sent to chiefs of all state enforcement agencies and to all chiefs of police in cities over 100,000 population. Other similar projects are to he studied during the months ahead. _ . 12. Two project committees were set up during the year, under authorization of the Executive Committee. The'one on dimout.traffic safety is-now preparing'a final report and will be dischargedl.wfaeii this is done. .The completeireport review dimout conditions, present-'acci dent experience before and after dimduts were inaugurated in. representative - areas on both coasts, discuss the general effects of dimouts on traffic accidents, and. rec ommend to officials, drivers i and pedes trians measures for preventing accidents under dimout conditions. Edgar FrCopell, State Traffic- Engineer of Massachusetts, has been chairman of this project,com mittee. . ., 13. The other project committee was the one on post-war traffic safety plan ning. This was set up as an interim com-. mittee to explore the problem and-see what could be developed. An excellent jpb was done nnder the leadership of W. Graham Cole, who served as chairman of the interim committee, and the Execu tive Committee has authorized full steam ahead on what gives promise to be one . of the outstanding undertakings of the Street and Highway Traffic Section. Act ing on the recommendation of the interim committee, the executive committee has authorized a special study committee on post-war traffic safety planning. This will be a programming and coordinating com mittee, to supplement bnt not duplicate the work of. present committees, and to give some suggested coordination to the plans of other associations and groups which may care to cooperate with this committee of the' Street and Highway' Traffic Section. 'J 14. Plaits are being made for recomf mendations by the executive commi^teg^ bn new sound-slidefilms which are needed. Films considered briefly by the executive' committee are on the following subjects:1 a. A film on safe driving and walking practices, including rules of the road, pedestrian rules, etc, suitable for use in violators' schools and for general traffic safety. b. A film on accident records, which - would promote the collection of acci dent reports, proper filing, and uses in selective enforcement, engineering and educational programs: c. A film on preventive maintenance, since it will be a long time before . Street and Highway Traffic Section 71 new ears will be. available," even should the war end immediately. d. A film on traffic enforcement, 'Which would stimulate ' departments - to higher standards, and through ac? quninting the public with the rami* locations of traffic law enforcement . obtain bettor public support. More complete' descriptions are to be submitted to the executive committee by letter, after which selection of-three to be produced wil! be made. 15. Two important new policies were announced by Mr. Cole to tHe executive committee, which especially apply to the personnel of committees of '.the section. These are:. a. No one shall serve as chairman of more than one regular committee at a time. ' b. Excessive duplication of assignment of members of the Section to several committees is to be avoided, and will probably be developed into a .plan whereby no. one member of the Sec tion shall be appointed to more than two committees.' Id. Consideration is being given to plami which should ultimately greatly expand the scope and usefulness of the natural groups of the Section. I refer to police and traffic courts, and possibly to en gineers and public safety education groups. Briefly,.a study will be made of the possibility of creating sub-sections oir major divisions of the section, which would function practically autonomously under their own executive committee, with proper representation of each divi sion on the executive committee of the section. Police and the traffic court groups are particularly interested in the possfr bilities which this holds out. to them far greatly expanding their program and effectiveness. 17. It was repeatedly emphasized,by the members of the executive committee this morning--and I should say that this was one of the most largely attended meetings the committee has ever held--that there is much work to do in the months aheajd in the field of traffic safety, and everyone should go from this Congress ready and willing to do the best job ever. THURSDAY AFTERNOON SESSION October 7, 1943 Group Session for City and State Police Post-War Traffic Enforcement Planning By FOSTER M. KUN2 Spatial Agent, Federal Bureau of Investigation, Department of Justice, Washington, D. C. A Panel Discussion., The Federal Bureau of Investigation has become interested in traffic law en forcement because its officials recognized that through the National Police Academy a contribution could be made to this field. The FBI has availed itself of every opportunity to be of assistance to local law enforcement agencies, because it is realized that only - through mutual co operation and assistance will the stand ards of law enforcement, as a whole, ;be raised to the level it justifies and requites.. The National Police Academy is' one of the cooperative functions instituted, by the FBI to accomplish this purpose. The Academy was organized in 1935 to pro vide training for representatives of gov ernmental law enforcement agencies. It is now in its twenty-third session iknd upon-the completion of this session more 72 32nd National Safety CoHgre$sr1943 than 800 selected law enforcement officers of practical experience in ^traffic world representing every state in the onion and In addition, visiting lecturers are still many foreign agencies will have received called;upon to discuss special phases of training through its facilities. The need the work in which they specialize or are for trained enforcement officers now. as most interested. well as for the immediate post-war period* has been recognized by the- Bureau and the program of .the National Police Academy has been continued without any deterring effect' by the war. Besides the three weeks allotted to technical traffic subjects, approximately six additional weeks are devoted to sub-' jects which are directly applicable to traffic work and would normally be in Some of the officers who attend are cluded' in a school specifically for. traffic administrative officials in their respective safety and enforcement. Some of these departments. Others are high Tanking subjects are administration and organiza officers with administrative duties. These tion, police records, personnel problems men require the broadest type of training * and. public' relations, public speaking, in all pluses of law enforcement. Since photography, testimony and court room traffic enforcement is one important ad behavior, report writing and dictation; ministrative duty, it is essential that they .first aid, use of the. Laboratory, and have an understanding of the problems' others. encountered in this branch of enforcement The coarse attempts to .promote .the work. acceptance of traffic safety ;as a profes Many of the other officers are engaged sion equally important to criminal and either wholly or part-time on traffic en other branches of law enforcement It forcement. To these men instruction in aims to develop an appreciation among traffic safety and enforcement is particu all officers tor the problems involved in larly necessary and important because it this work, and provides snffirient* infor is their every-day job. mation bn procedures and techniques to All of those who attend the Academy intelligently approach these problems. are expected to conduct short courses of instruction for the other members, of their departments when they return. Since traffic enforcement comprises such a large portion of present enforcement activities in .many - departments, it is. essential that these men have'-a back ground and appreciation for this work. Post-war plans are being made to ex pand the present program by! first increas ing the number of men to receive training and secondly .extending and broadening the traffic coarse. Present plans are also under way to improve the coarse by pro viding charts, illustrations, and- exhibits which will be used as visual rids to ac In view of these facts, traffic instruc company lectures-on the various subjects. tion was at an early date included as a Sample accident reporting and filing sys regular course in the curriculum of the tems will be organized; field equipment National Police Academy. In the early for making surveys, special studies and sessions instruction was limited to, that accident investigations are bring collected, given by traffic authorities who appeared for instructional and-display purposes;: a as guest lecturers before the Academy. sample library to include j publications, During the last several sessions three books, pamphlets, etc, on traffic safety full weeks of study have been, devoted work is bring compiled. With the use of exclusively to traffic safety and enforce- these.and other facilities it is believed v~ment All branches of the field are cov that the coarse will prove to be of more ered by the regular traffic instructors who interest and value to those who attend are men qualified for this task vrith years the Academy.