Document V3RneDLrxY5VRennbQrZqZKxq

NATIONAL SAFETY CONGRESS . s, STREET AND HIGHWAY TRAFFIC COMMERCIAL VEHICLE, TRANSIT, CHILD EDUCATIOhpAHg HOME SAFETY SESSIONS Chicago OCTOBER 7-11, 1940 ^ O * S'* * NATIONAL SAFETY PfPNCIL, INC. . 20 North Wocker DriW, Chicago ^c""Kn<"** O / PLAINTIFFS EXHIBIT \S*\ll/~o*51CT~ PLAINTIFF'S EXHIBIT 0/M5 29 Vo L. / Contents Street and Highway Traffic Section................................ 3 Commercial Vehicle Section................................................ 95 Transit Section ......................................... ................ ............. 127 Child Education Section........ .....................139' Home Safely ......................................... ............... .. Sv..... 177 Safety Exposition Exhibitors..................................... 193 Index.............. ............... 195 THE Transactions of die 29th National Safety Congress and Exposition of the National Safety Council, October 7-11,1940, are published in two volumes. Volume I contains the General Subject Sessions 'and the Sessions of the In dustrial Sections of the Council. This is Volume II. Vol-' ume I has been distributed automatically to Industrial Members of die Council; however, other members may re ceive a copy of Volume I on request if they are particularly interested in industrial safety problems. \ fl THE Transactions are a condensed record of the proceed ings of the Congress. The papers and addresses have been edited to delete extraneous matter, abbreviate the less important portions, and emphasize information which may be of particular usefulness in promoting effective safety organization and other accident prevention measures. These volumes are, therefore, a somewhat abridged version, com pact, practical and of especial value to the safety student and the executive interested in achieving more thorough ac cident prevention success. The original manuscripts are available for reference, if desired, in the files of the Na tional Safety Council. THE National Safety Council, at its Congresses, seeks to eliminate from discussion matters which are not perti nent to the aims of the Congress or whidi may be contrary to Council policies. However, it cannot accept responsibil ity for all of the views expressed either in the papers pre sented or in the discussions whidi followed these papers. NATIONAL SAFETY COUNCIL, Inc. SO North Wacker Drive Chicago Gem First Vs Seco las Thir Cc JFota Fifti Cc Chat foi Chai . As Mem Ex~i Seer. Ill Gem First or) Seco an Thir, Hi Four Sa Chai foi Street ana Highway Traffic Section Officers 1939-1940 General Chairman--Judge Harry H, Porter, Chief Justice, Municipal Court, Evanston, III. First Vice-Chairman--Colonel John A. Cutchxns, Director of Public Safety, Richmond. Va. * ^ Second Vice-Chairman--Carl J. Rutland, President, Texas Safety Association, Inc-./Dal las, Texas. TW Vice-Chairman--W. Graham Cole, Director of Safety, Metropolitan Life Insurance Company, New York Gty. fourth Vice-Chairman--Leslie.J. Sorenson, Gty Traffic Engineer, Chicago, I1L Fifth Vice-Chairman--Frank C Lynch, Secretary-Manager, Greater Los Angeles Safety- Conncffi Los Angeles, Calif.. Chairman, Committee on Accident Records--Wilbur S. Smith, Research Assistant, Bureau for Street Traffic Research, Yale University, New Haven, Conn. Chairman, Annual Congress Program Committee--Walter B. Martin, Secretary, Peoria, . Association of Commerce Safety Council, Peoria, IU. Members at Large-- Leok Aronowitz, Deputy Commissioner of Motor Vehicles, Albany, New York. Harry Barsantee, Supervisor, News Bureau, Travelers Insurance Company, Hart ford, Goon. R. Whitney Groo, Superintendent, Utah Highway Patrol, Salt Lake Gty, Utah. ' Howard F. Ilgner, Gty.Traffic Engineer, Milwaukee, Wis. \ Captain Fred C Mnxs, Director of Health and Safety, Boy Scouts of America, NewO J York City. Ex-Officio, Former General Chairmen-- ' William G Knoelk, 1522 Kane Place; Milwaukee, Wis. Professor Roger L. Morrison, Department-of Highway Engineering and Highway Transport, University of Michigan, Ann Arbor, Mich. . Secretary--VLawl J. Reeder, Chief Traffic Engineer, National Safety Council, Inc, Chicago, 111. I Officers 1940-1941 General Chairman--.Judge Harry H. Porter, Chief Justice, Municipal Court, Evanston, 111. First Vice-Chairman--Carl J. Rutland; President, Texas Safety Association, 518 Inter- urban Building, Dallas, Texas. Second Vice-Chmrmdn-rW. Graham Cole; Director of Safety, Metropolitan Life Insur ance Company, New York Gty New York. Third Vice-Chairman---Fbank C. Lynch, Manager, Greater Los Angeles Safety Coundl, 1151 South Broadway, Los Angeles, California. Fourth Vice-Chairman--Walter B. Martin, Secretary, Peoria Association of Commerce Safety Council, Peoria, Illinois. Chairman, Committee on Accident Records--Wilbur S. Smith, Research Assistant, Bureau for Street Traffic Research, Yale University, New Haven, Conn. t.. i 3 4 29th National Safety Congress " Chairman, Annual Congress Program Committee--Richard O.. > Bennett, Di*rector, Lansing Safety Council, Lansing, Michigan. Members at Large-- Harry Barsantee, Supervisor, News Bureau, `travelers Insurance Company, Hart ford, Conn. Earl F. Campbell, Secretary-Director, Portland Traffic Safety Commission, Depart ment of Public Works, Portland, Oregon. Capt. Fred G. Mills, Director of Health and Safety, Boy Scouts of America, New York City, N. Y. D. G. Reynolds, Director of Public Safety, Miami, Florida. . Capt. G J. Scavarda, Commanding Officer! Safety, Traffic; and Operators' License Division, Michigan State Police, East Lansing, Michigan. Arnold H. Vey, State Traffic Engineer, Trenton, New Jersey. Ex-Officio, Former General Chairmen-- William G Knoelk, Chairman, Milwaukee Safety Commission, .Milwaukee, Wis. Professor Roger' L. Morrison, Department of Highway Engineering and1"Highway Transport, University of Michigan, Ann Arbor, Midi. Secretary--Earl L Reeder, Chief Traffic Engineer, National Safety Council. Tnc., Chicago. III. ' ............. ' - ! .1 MONDAY AFTERNOON SESSION October 7,1940 Joint Session with Institute of Traffic Engineers Presiding: Judge Harry H. Porter, Chief Justice, Muniapal Court, Evanston, IIL and General Chairman, Street and Highway Traffic Section, National Safety CoundL Interest and Plans of the War ent in Relation to trai fun Traffic Coibtroi 1 By LIEUT.-COL. A. D. BRUCE . by trai War Department, General'Staff, G-3, Washington, D. C or is s Some oi the questions that have been traffic is necessary, particularly while ex 1 asked lately are: What is the traffic set-up tensive troop movements are under way. sor in the Army? What is the Army doing to Our Field Service Regulations, the bases of fac solve its traffic problems? How can civilian all training regulations, has the following mi agencies assist the Army in the solution of statement: "In general, the methods of con . oth these problems? _ trolling and assisting traffic devdoped in Ma We know we shall .have many traffic sit-', dvilian practice should be followed, with uations. They will vary from one in which' oply^the modifications necessary to meet the the density of troop concentration is low, military requirements." ices 1 div the road net is ample, and the danger of The essential differences betwen peace-, roa interruption is small, to the opposite extreme time dvilian traffic and;military traffic in a' of. in' whidi the massing of troops, and the theater of operations are, military traffic is Jk scardty of good roads and danger of their subject to sudden interference and it gives (tioi damage by hostile action make it difficult to prominence to secret movement at night Sfi maintain supply and troop movements. The fact that military traffic is subject to I i In the first case, the minimum of control sudden interference by hostile activities re (is required; in the latter, a rigid control of quires that the plan of road drculation and cial unt Street and Highway Traffic Section } traffic control be flexible, so that damaged The Judge Advocate General is faced points may be by-passed at once, and that with the establishment of traffic rules. arrangements be made~:for prompt repair. The evacuation of civilian population are Movement of traffic at night with secrecy functions of G-l and G-3 of the General requires the development of<means of mark Staff. ing the roads.and of lighting vehicles to It is thus seen that we have quite a prob assist drivers and at the same lime avoid lem in coordination. detection by airplane' observers.; This is a problem that is entirely foreign to normal, civil practice. The next question we set out to answer is--What is the Army doing to solve its traffic problems? With this general orientation we come to the question: What is'.the traffic set-up in the Army? "" r. In the spring of this year large maneuvers were field in, the Ft Benning and Louisiana More' moto? transportation was in-. The provision of a plan of circulation, volved in these maneuvers than ever before. when required, the determination. of the Report after report indicated that our traf necessary control measures; and the super fic control system must be improved. vision and coordination of the various agencies involved are^functions of the G-4 section of the general staff of the head quarters which controls the area involved.. Among the numerous recommendations was one to improve pur training literature ori: Traffic Control. This is where my di vision (G-3) fits in. Recommendations for a plan of circula tion, the maintenance of the existing roads, and their improvement and extension where feasible; the provision of. suitable road maps; and the posting of signs along the roads indicating routes, . localities, and estab lishments as shown on the maps, are func In ..July; 1940, the Automotive Safety -,* Foundation offered to assist the War De partment in improving traffic control. Ad vantage was taken of the offer and a con ference was arranged. Present at the con ference were several .civilian experts.. tions of the Corps of Engineers. The purpose of the conference was to de termine by informal discussion with the Coordination various civilian experts what application, if any, the experience of these experts might Enforoqrnwuof regulations and orders for have to the problem of military traffic con traffic.codtroVand expedition, of traffic are trol. functransof fhe-militar}' police.; ; The following three main subjects were The provision of means of cbimnunication discussed at the meeting: traffic engineering, by telephone,' telegraph, or radio, between training of traffic military police and driver traffic control posts of the military police, training and fleet operation. or other agencies involved in traffic, control, As a result `of the conference Captain is a function',of the Signal Corps. o. Everett, who is here today, was designated The provision of suitable vehicle acces to attend the National Institute for Traffic sories, including adequate brakes, and satis Safety Training and since then has gotten factory lights is a function of the Quarter in contact with :many. civilian experts. master Corps, Ordnance Department, or . Arrangements were made,,for civilian ex other service which provides the vehicle. perts to witness the maneuvers of the First, Maintenance is also a problem of these serv ices. . Second, and Third Army. Among these experts was Sidney J. Wiliams. Their excel The training of organizations and pi, in lent reports have been disseminated to the dividual drivers in the proper.tge m the interested agencies htthe Army for study. roads is one of the important responsibilities of organization. O development of anti-aircraft protec- Later, a study was submitted to the Chief of Staff on means of improving training literamrej'who' approved a letter on this sub- f bottlenecks is primarily the function jectio the various agencies involved. Their lie Coast Artillery. ' in&dies are raising many questions that must Defense against ^chemical warfare, espe f?be) answered. For example, at the sugges cially the decontamination of road areas, is tion of Army and civilian experts tests may under the Chemical Warfare Service. be made to develop scientific driver selection 29th National Safety Congress and training that combines usefuldvilian question of Ikenses for maneuvers is a developments in this Add -with the best soli trooblesotneooe.' tary practices, and -to determine additional baste factnal data with modem Aifoy equip ment The solution of some questions may involve changes in organization in.the Army but definite steps toward, their solution are .being taken. Continue to emphasize driver selection and traimng/ safety^measures and the like. ' Siix* yoa have qffiaxd your helpweex- peetto caUvon ycm frorn to time to locate ^National Gqanf and Reserve officers in civil Ufericfo'.epgagedin traffie,work;to secure additional ocpertswhcri required; to Civilian Assistance assist in drawing up oourses, lecturing: and fle fike in^semalcoarsesprsdrodls for The last question is: Hqjvwcan civilian agencies assist theArmy irimesolution of its problem? They can^fevise a, simple means for faalitathig cooperationbetween military, state and city officials for traffic movement In this connection we may neo! centralization on both tides.' .A centralized agency in the#War Department and a central association among state, county and dty authorities. For example, the problem of trafficdititiol,:d^ driver-tests, etc; to let us know of improvements in ^communication for.traffic control; to devise JDCCCSsary 'cquiproent, to assist ns to develop training films., and' strips .from-, the. Army viewpoint; to augment your disaster plans for flood, fire* earthquake,with plans for evacuation of civilian population. I repeat I have mentioned only a few of the prob lems. .' who to get in touch with in the metropoli I would-like to point out that, at the pres tan area of New York is a. difficult one. An ent time we have bad to decentralize a great ideal to work toward would be to obtain deal .of the weak for the improvement of through, one association the selection .of traffic So many people who write or $ome routes and provisions made for marking.of to Washington to hdp us get a feeling of routes and control in the execution of plans. bring, pushed around. lit order to obviate this as near as posable we are using the Continue to push the simplification and Automotive Safety Foundation as a central unification of traffic rules on the grounds of agency, for'contacting"the proper personnel national defense. In this connection the to render or recave assistance. The Present Challenge, of Traffic Accidents By SIDNEY J. WILLIAMS Director, Public Safety Division, National Safety Council, Inc; Chicago The number of traffic deaths in the United States went down continuously - for -17 months from November, 1937, to "March, 1939. Then 12 of the next 15 months; through June of tins year, showed increases. In July the toll went down 3 per cent, com pared with July of last year, but It went up 18 per cent in August, the greatest per-, centage increase in three and one-half years. The national death rate; in terms of mile age driven, went down 19 per. cent in 1938; 5 per cent in 1939, and seems to be bedding about even, so for this year. This trend in rates is ait important technical fact, but it is a poor alibi for any sustained rise in deaths and injuries. It is our business as traffic and safety ex perts to make the motor vehicle a safe as well,, as .an. increasingly useful feature of American life: With what we now know about individual and community control of motor traffic there can be no.possibIe ex cise in peace or near-war orwar, for let ting the national toll even approach the 1937 reebrd of nearly 40,000 deaths, nearly a mil lion and a half injuries, and billions of eco nomic loss. Elated by the 1938. showing of over 7,000 lives saved,.some of'us woe bold enough to prophesy that within a few years an annual death foil , of 30.00& 20,000 orevenlOJWO would be Regarded in retrospect as an inconcrivable waste; unworthy of-a civilized peo ple. Must we now. regret that proud toast and hope that noone remembers it? That is the present challenge of traffic accidents? C^t Soprevo lower it is direct! dents ter hi; of. he public standi point* tbeu their tbrir tharic Pei vritoli atnre when tion itsrif Ev thing caust qpd rithe .*`^ ' '.- '** * \ ; c~s? Streetand Highway Traffic Sections' '\ .\l/ jSo- many factors oo help to cause or to -.way. I venture .to say. that unintended preventa sn^ acadent, and to raise or- sabotage through accidents is a greater men lower the city, state Or rutionaltotal,that ace than tod sabotage of alien agents. it is easy to "explain" a change in either directiqp.: Two years ago l said that acd- deats were going down becansewe.had bet ter highwaysand cars, better administration of better laws, better' safety edhcatttin and pablid^:; and organization, tetter ni^ter- standiniir by? A6Mridoat Eventhen I pointed outthat many states and cities had the weakest; land of safety' program, that their rates were inexcnsably Inl and that their <tecrease^ if any> had been more lucky thah ddnm '- . Tolerate No Losses We caiihof afford the loss through acci dent of a man who is serving his country in this crisis, whether' behind a lathe or on, the General Staff. In peace tim^'when such - a lossi occurs we may muddle through--but not in time of ends. According to news.-^ report^, one factorj in toe French collapse^- > was. toe death of .General Billotte in an >. > automobile accident just when he occupied a key position in the Francn-British effort Three Dangers to junch ortoe German drive to toe Chan- . -neL . ' A yearagtv when accidents-werebegin- We have, a realJob ahWd of us I We ning to go 19 s|aiiv r aid thit die Safety . must stop losses of men andmaterial every Movement was faded wito three serious where, because our country needs men and dangers : .the threat of nowise economy m material. We must keep-toe highways open official furictiorting andsafety ..campaign for- nuEtaty. traffic, and "military traffic?/*?} ing; the threat; jof jpcJitied today--or tomorrow--means every kind of ~^ andthethreat ofpublic lethargy-rtfOeaction ' traffic in every one of the 48 states. from thebectic wave of popular interest whidt: started, with "And- Sodden Death" aod whidi i'ftar is today too anemic to Correct All Defects stand up against a World .Series, to say nothipg of a World War. ^ * ' We must therefore quicklycorrect toe defects and deficiencies in our highway sys- J Perhaps* that sugg&ts the .crux, of the tem, or.'alleviate them with signs and sig whole matter: ' Was safy a fad, like mini- nals. -> We must police these highways- for atnre golf? Is it'a tmchry, to be forgotten maximum efficiency, and further insure toe when sterner issues arisj? proper use of.toon.throughdriver license control. We must train all our young peo . Safety Is Efficiency e, ple and many older ones if we can, so they wifi know how to.handle their own ve- I need, not'prove to yon what ybu already Imow: that, leaving aside *all toe' humani ties, safety isjustSnc toer name -for effi ciency. Both meanlhe Same---doingthings the right way. in toe f ctory,bn the-high way, anywhere. In! th ii year. and. month; hid^s and, -if need\be, -Unde Sam's. The 'i Ansry needs our hdp in recruitiiig great . numbers of, competent/ drivers. Our state; ami community safety. organizations have: an important role to play in the mobiliza- tion'of all forces for national defense. more thiin eVer beforei we justcan't afford We must do all this despitethe handicap to have a powderpfcin blow up, either by of public indifferience and a considerable accident or by; design. We ean't afford to amount of personal recklessness due to war have^tza^c accidents t e up toe swift and e_m__o_t_io_ns. -W_. e_ must _fa_c_e__b__u_d_g_e_t_e_c_o_n_o_m__i_e_s, stn&pdvernent of goods to and from muni- .which means that we .must somehow do a tSqjyjf plantsand Army depots, not -to' men- f better job .on toe -same or less money. We tion the 'movement of toe. motorized Army v all/offidals and citizens of every ntok and itself. inte__r_e__s_at., _m_'u__s_st.' subme__r_g-e petty. dJi!ffe..r:ences Every accident; is- a] symptom of [some aiMcoaffictit^'am^tions. thing wrong. Accidents andthe things that . causeacmd^ts/causecongesticmand delay; and we ctamottolgifo;dx^^ either on the assembly lineor on toe high- Can we do it? . Will we do it? You-in this , room, more'.; than any., equal body of men in tod' United States hold toe answer. I'm betting that We; can and win. - ' C* . I ' l f- ! .r 8 29th National Safety Congress Report of Committee on Pedestrian Control and Protection By LESLIE J. SORENSON (Member I.T.E.) City Traffic Engineer, Chicago, and Chairman of Committee on Pedestrian Control and Protection The following is a summary of die facts and recommendations presented in the 1940 Report of the Committee on Pedestrian Control and Protection. The complete report is available in a pamphlet from the Coun cil's Traffic Engineering Bureau. It presents new information relative to the. pedestrian problem as well as a discussion of methods of reducing pedestrian accidents in rural and urban areas. The . Report contains information con cerning the status of pedestrian regulation in 180 cities having ordinances regulating pedestrians and a description of numerous educational activities now being conducted in cities throughout the United States for pedestrian safety. Facts and Recommendations for Pedestrian Safety . 1. Although the cities in the United States have enjoyed a decrease of 28 per cent in annual pedestrian deaths since 1930, rural areas hare suffered an increase of 41 per cent and' the trend continues upward in 1940. These facts offer a major problem for states, counties and city officials whose duty is to protect pedestrians as well as motorists. \ 2. Nation-wide interest in the urban 'pe destrian problem and extensive acceptance of pedestrian responsibility have been de veloped in recent years. Physical protection and educational material have been pro vided in many cities by city officials, safety councils, safety commissions, civic organi zations and others. More and more cities are now enforcing traffic, laws that, regulate pedestrians as well 'as motorists. Similar ac tivities are recommended for the protection of rural pedestrians. 3. Studies of pedestrian accidents have shown persons of certain age groups, occu pations and areas to be particularly sus ceptible. These groups should be educated through agencies which they understand and in which they have confidence. 4. The high frequency of child pedestrian accidents during daylight hours and adult pedestrian accidents at night demands more attention of persons responsible for traffic safety. Half of the pedestrian deaths occur between six p.m. and midnight, while these six hours account for only one; in three' fatal non-pedestrian accidents. 3. Public officials (state, county and 'city) should investigate the seriousness of the pedestrian accident problem. Accident rec ords provide this information and point the way to heeded remedies. Accident records indicate: the locations and the types of phys ical protection most urgently needed by pedestrians, and more officials should be maldnguse of them. 6. Pedestrians share street and highway facilities with motorists. It is reasonable and necessary that pedestrians also share the responsibility for the safe use of these facilities. Nearly. 200 cities and several states have recognized this by enacting traffic laws regulating pedestrians as well as drivers. Other cities and states should . adopt similar law's as provided in the Model .1 Municijial Traffic Ordinance and the Uni form Act Regulating Traffic on Highways. 7. .Instructions for safe walking should be provided uninformed pedestrians that they may recognize and accept the responsibility for their own safety.' < 8. Pedestrian obedience to regulations should be made as easy as possible and violations more difficult Traffic signals, pro tective barriers, tunnels, bridges,-islands and pavement markings should be used where needed. However, traffic signals should not be erected unless warranted by the traffic volume, and tunnels and bridges should not be built unless conditions indicate dearly that they .will be used. They should be so designed and located as to provide maximum protection-.and encourage obedience- to pe destrian regulations.. 9. Pedestrians must be compelled to obey rules of the^oad^ajjd drivers must be forced to observe the rights of pedestrians if accidents are to be reduced to a minimum. Street and Highway Traffic Section 9 The Motorist JLooks at the Pedestrian By BURTON W. MARSH (Member I.TJB.), Director, Safety and Traffic Engineering Department, American Automobile Association, Washington, D. C. ^,,The motorist looks at .the pedestrian and . seesNthe most neglected factor, in traffic, fie also/sees the chap who accounts for , two-thirds of fatalities and nearly half of the injury toll' in dries. For the country as a whole, he -sees the person who accounts for two out of every five billed. in his mouth. "I havetny rules to follow and my responsibilities in traffic And if I don't do as I. should, -1 am quite likely to be penalized. The man afoot can't expect me to do the impossible--he shotild observe his rules for walking'' and accept his re sponsibilities in traffic" ' The motorist looks at the pedestrian and The' night-driving motorist looks at the says to himself, "There's the last object pedestrian--or at least looks FOR him-- in the world that I would want to hit" but finds him mighty hard to spot when. For the motorist realizes, that almost every dressed in all dark clothing. Isn't itreason- pedestrian crash involves injury, or death,. able" he asks, "for the walker at night to whereas he knows that hitting smother car wear or carry something-light-colored? or fixed object very often results in no,, And furthermore, this is a very busy artery injury* and I've read of numerous pedestrian crashes The considerate motorist looks at the on it at night. Why isn't it effectively pedestrian and says, "Why, I was.in that- lighted.??, fellow's place just before. I got behind this A voice answers "Yes, those are good wheel! "I'm the o"ne,now 'encased in armor' points, Mr. Driver, but until this artery and it's up to me to give him a break. We're is traffic-lighted or .tmtil walkers are trained both street users and we've both got to to show something light-colored, it's iip to learn to get along together--on a fair co you to keep your headlights adjusted and^ operative basis, according to a reasonable dean, your windshield dean, and to drivei- jet of rules-of-the-game. Go ahead, brother, slowly enough so thatyou won't hit a pedes- (waving his hand), I.was about to turn but - trian." . you have the right-of-way here." Note The sober motorist looks at the pedes please that this is the considerate motorist trian--and sees one lurch dronkenly across of whom it may be* said, "Abu Ben Adam, ^e intersection; paying no attention to the may his tribe increase---- /rrod signal. Another driver whose view of . The inquisitive motorist looks at the '"the tipsy walker is hidden by a moving truck pedestrian stranded, in mid-street and asks, is BARELY able to avoid hitting the be "Why wasn't he warned when there wasn't fuddled hoofer. Says the sober motorist, enough remaining rime for him to cross be "Now if I were to drive in that condition, fore the signal light changed?"- Or, "On so :Fd be in for real trouble Why shouldn't wide; a street as. this, why. isn't there a that pedestrian be taken: into custody, at safety isle in the center for him?" A bit least for. his own protection?" farther-down the street at a jog intersec-' don he sees a pedestrian trying to cross where traffic is never stopped .and asks, "Why aren't there barriers there so he can't walk out into trouble?" A bit' farther into the midblock and WHAM! He slams on his brakes' and: swerves; narrowly avoiding an adult pedes trian .crossing from between loading trucks and never even once ^looking toward the All of these motorists look at the pedes trian and ask, "Why aren't these pedestrian problems being given more attention?" "VVell," answers their Motor Club secre tary, "one reason is that communities do not really appreciate how bad the pedestrian toll is, and that lots can be done about it One trouble is that the main facts haven't been obtained in.;par community.? *''^ inquisitive and now nervously-gulping motor "Have the facts been obtained,anywhere ?" ist. "Why, oh why, isn't more emphasis asks .a motorist given to" training pedestrians in sound walk "Yes, the AAA has made a very exten ing practices?" he mutters, his' heart still sive study," replies the secretary, "and the wmmmmmm X.S 10 29th National Safety Congress results are most interesting." For example, these key facts are typical: Ten Key Crash Facts 1. Pedestrians lead in toll. In cities, twothirds of those killed and nearly one-half of those injured in traffic are persons afoot Even outside cities, one-quarter to one-third of those killed are pedestrians. 2. Middle-Aged and Older. Grandpaaged 50 or over--is the victim in the ma jority of pedestrian fatalities. 3. Male. , Seven out of ten pedestrians killed are male. 4. Death After Dark. Some four out of five adult pedestrians are killed in hours of dusk and* darkness. .... 4 i * .... fe'a 5. Non-Drivers. Non-drivers, ignorant of problems and limitations of the man at die wheel, account, for nine out of ten deaths to persons of licensable age 6. Jay-Walking and Playing. In cities, jaywalking in the midblock is usually the leading wrong practice of adults, while most children are killed at play. 7. Intoxication. Studies of brain tissue or body fluid by New York City's Medical Examiner and the Coroner of Cuyahoga County, Ohio, (Cleveland area) involving some COO cases, indicated that two out of live pedestrians killed had been drinking substantial amounts of intoxicant 8. Low Inconie and "Foreign" Groups. Unduly high proportions of pedestrians killed in cities come from low income arid "for eign" residence sections. 9. School Children. The fatality record oi school children has Improved consistently while the adult toll has grown much worse However, school children have by far the worst INJURY rate of any age group. Hence the schools still have, much to ac complish in traffic safety training. - 10. Vigorous Programs Produce Reduc tions. Contrary to what many have thought and now think; records show that intelligent pedestrian programs will prevent many pe destrian deaths and injuries. "Say, those are interesting facts, and they will help me," states the motorist-lookingat-the-pedestrian. "As I understand it, our own community's facts may be different They should be obtained; then we all would have a basis for improving. the situation. But what are the reasons behind those facts?- There must be reasons why pedes trians are so often involved in traffic crashes." Traffic specialists of the American Auto mobile Association believe that the following are among the main reasons: Six Reasons for Crash Toll 1. Elderly non-drivers, predominant in the toll, do not understand driving problems, such as distances required to stop, difficulty of soring pedestrians (particularly in rain and,- when dressed in dark clothing), the many things the driver must watch, limited ability to swerve car suddenly. 2. Pedestrians, noting bright lights of car, think they can be seen much sooner than drivers "spot" them. Drivers very often overdrive their headlights. 3. Many pedestrians do not . accept their responsibilities in traffic In Minnesota, in 1939, two-thirds of pedestrians killed were breaking some sound walking rule 4. Older pedestrians do. not make proper allowance for their poorer vision--espe cially Night Vision--for hearing.defects, for slower walking pace, lessened alertness and momentary lapses of attention to traffic . 5. In many places, there are unsatisfactory pedestrian farilittesf Examples: lack of a traffic signal face ahead of pedestrian cross ing at crosswalk, too long traffic signal periodv-laac of pedestrian islands, cross walks which motorists cannot see at night and in bad weather. 6. Many communities still do not know their pedestrian FACTS and hence have an inadequate basis for a sound program of pedestrian aid. "Those sound reasonable" says the motor ist "Yes," says the secretary, "but the acci dent measure does not represent the whole picture As a matter of fact, the average pedestrian is vastly more irritated,, if not enraged, by the delays and inconveniences to which he is so often unfairly subjected, than he is concerned about bring on the casualty list So to meet the pedestrian's needs, pedestrian convenience shonld .receive equal attention with pedestrian protection. An effective program based on both factors will gmn general public support." "A scemi me tl For chani chant and ] midd their tude as tl .moto until street sensil contr injur crash triahs "N easy oven apatb dtize ing a such thep eouU He progi onstr duce* 1939. vigoi those field. Mo. teeth 500,0 7 in more of tl gress fatal have one-t "V looks prow what any i a sri "R one with see t Street and Highway Traffic Section ... 11 ) "A program, you say. Well, one surely who are-going to have to do that selling seems to be needed. But it doesn't seem to job." o tne that the job to be done is an easy one. For to a considerable ^extent it involves changes in .customs. -Tfceremust also be changes in attitude by both we motorists and pedestrians. Those afoot, especially the midcUevaged and -older, must get out of "Well," said the interested motorist, "I'm willingto do some selling, but how should ourcogununitygo about this job? Aren't there a few simple, practical steps which can be recommended?" theirjninds the horse-and-wagon days' atti tude that they may walk when, where, and as they wish and it's entirely up to the .motorist to see^that they are not hit But until pedestrians have been trained to cross, streets and walk along highways fairly and sensibly, I can see that we motorists, having "Yes, there are;" replied the secretary, "and in considering these) remember that the need fd&actioa is great; for the pedes trian is indeed number one problem child in traffic. Yet most communities are not . /" snaking anything like satisfactory progress^; The main reason, is neglect, of lade of control of the instrument which .can do the ^'sufficient emphasis on the needs of the man injuring and killing, must so drive . that- a afoot" crash may be avoided! even, when pedes trians do foolhardy and unfair things." Six Steps to Get Results "No," answers the secretary, 'it's not an easy job, nor is it one that can be done overnight But that's so reason for .the apathetic attitude of somemajor officials 'and citizen leaders. In a recent field, trip, cover ing a dozen cities in one state, a number of such persons were found who admitted the problem but just didn't believe that much could be done" "Here -is a. six-point basis for getting desired results in your community." .o 1. Get someone assigned to the job of becoming your pedestrian expert. The seri ousness of the problem warrants this per haps seemingly drastic step! In the larger communities, this should be a full-time as signment at least until the situation is How wrong that viewpoint is, numerous -greatly improved. Where a traffic engineer - progressive cities and some states are deni- . has a staff, a man on that staff might well Instrating. Schenectady, for example, re be -given' this job. In communities where duced pedestrian -fatalities 82 per cent in r;that is impractical, a keen police officer 1939.' In the past few years, .Cleveland by might be the best selection. Incidentally, rigorous programs, hasirxut Natalities to ^ the police are-..accustomed to this idea of those afoot more than one-half. Spring-"" specialization where the problem warrants held. Mass.* co-winner- with Kansas City, it. Thgy have fingerprint experts, ballistics Mo. in the 1939. National Pedestrian Pro experts^scientific crime detection laboratory tection Contest among cdties of 100,000 to . experts, officers who-become expert in juve- 500,000 population, cut fatalities from 13 to nile'~ddinquency and its prevention, and 7 in 1939 and reduced pedestrian injuries by some have hit-and-run case' experts. more than one-third. For the first six months of this year, Rochester,'New York's pro-, giessive program has reduced pedestrian, fatalities from 13 to 4. And numerous cities' "But is there enough specialized work to warrant such , an assignment?" asked the inquiring motorist have' pedestrian death rates of less than "If you doubt this, let me suggest that one-third those of others. you-study this AAA manual--pedestrian "Well," said the inquiring motorist, ."it protection. Yes, there is plenty to keep looks as though. various communities, are zap. keen interested person very busy." proring that , much can be.-done. But from what -yon have said, it appears that ,before any real programis going to be carried out; a selling job must be done;" Have your pedestrian expert-to-be get the mapt local pedestrian facts so that he and yon will brow just what your main problems and needs are?. Obviously, this "Right 1" replied the secretary, "andcihatV is the only sound way to" tackle this or any ane reason Tm so gbad to talk this over other problem. And your bets, and needs with you. For it's those of us who really may differ from those of other communi see the need and realize what can be done ties. -s wmm 12 _ 29lh National Safety Congress ( ' ' 3. Organise for a "total war" on pedes superb public interest and active cooperation. trian accidents and inconveniences. The 6. Enter and utilise the national pedes job is not/ wholly a traffic engineering or trian protection contest for the stimulation police job. Schools mast do better their which active participation will provide, and job of training children. Newspapers, radio stations, morion picture theatres, churches, automobile clubs and other civic agencies; mass transportation companies, insurance companies, etc., should do their part in for the materials arid suggestions sent every three weeks. Every state and 390 munid? palities are entered in the 1940 contest, sponsored by the American Automobile As sociation. If your city has entered (it can adult education. The city attorney should still enter if it has not)'see that full use check to see that proper ordinances exist is made of the materials and of the com and prepare amendments regulations as needed, to legislative branch. and new proposed be enacted by the petitive /--values. spirit which is* one - of its mam "Thai pedestrian contest idea should help. Steps in the "Total War" Yes, those six steps seem practical and Fm going to propose diem to the government Organization is necessary to get all such agencies informed and united on the need for action--and then to get each to do his part of the job, in a coordinated program. If your community has a Traffic Com mission, get it to set up a special pedestrian and civic leaders in onr community," con cluded the motorist "But. suppose they agree--then they'll want some specific ac tivities and some materials to use in-their projects. Where can they get these?" "Prom several sources," answered' the committee. Or better, get it to direct each secretary*. of its comzmttees to propose a list of important^pracrical activities which it will Source of Safety Materials carry' out or promote, for pedestrian aid. If there is no Traffic Commission or similar organization working steadily on . traffic improvements, have on organized. Section five of the printed Model Traffic Admin istrative Ordinance will serve as a useful guide "Our motor club and the American Auto mobile Association have, I believe, the larg est selection as Three A, aided by grants from the Automotive Safety Foundation, has made this a major project tor four years now. "Organization is necessary to do any im portant job well. I agree to that," said the motorist, "What's next?" "Here is a kit of sample and guide materials, and incidentally, every city and state entering the contest not only receives such guides, but also receives . this pedestrian. 4. Dicide on a vigorous, continuing pedes pointers bulletin every three weeks. We trian program which can and will be carried particularly invite cooperation of cities and out. It doesn't need to be expensive Mach states in a Pedestrian Interview Plan, de can be done with no special municipal funds, signed to secure pedestrians' viewpoints and desirable though they are Many civic- factors concerning accidents. minded leaders and agencies will contribute time, materials and services. "In addition, excellent materials and aids are available from the National Safety The program should keep going the year Cbundl, the Liberty Mutual Insurance Com 'round, with always some worthy activities pany, the Travelers Insurance Co.--in fact, getting public attention--and with enough about every national- organization working" variety, merit and showmanship to attract in the traffic field can and will help. public interest and cooperation. . "I only wish, too, that there was time to 5. Work everlastingly for active public tell of some grand work being done by Con cooperation, for it is essential to success. necticut, New York, New Jersey, Massa Providence, Rhode Island's national record chusetts, Minnesota--to mention only a few of 156 days without a traffic fatality-- states, and by Rochester, New York, Cleve which means 32,501,384 man-days--rests not land, Cincinnati, Detroit; Minneapolis, Hart only - on a splinded program but also on ford--to mention only a few cities." Ro Jedo, and i tatioi Th by. M Polic (T1 taken addre Yoi Unite The ! and t prove model of a mark! patrol On ing at conqu A coir way t< We the w ual sa public thetn We stead ous, a toaltc Presid mitt Nad Street and Highway Traffic Section 13 MONDAY EVENING SESSION c October7,1940 Dinner for City and State Police Robert C. Dunn, Attomey-at-Law/ ,To- The ``Secretary's Report" was; given by ledo, O., presided as Master of Ceremonies Professor Joseph L. Lingo, Director, Pub- and made a cryptic extemporaneous disser- - lie Safety Institute, Purdue University, La- tation of humorotts character. fayette, Ind. The "Chairman's Report" was presented .. The speaker of the- evening then was in- by.Matthew J. Bolger, Inspector of Traffic, traduced, as follows: Police Department, Newark, N. J. ou The Modem``Code of Honor" t By'WILLIAM J. CAMERON Director of Public Relations, Ford Motor Company, Dearborn, Mich. (The following is a summary of notes The possibilities of dangers are increasing. taken by a reporter during Mr. Cameron's yet accidents grow fewer because we are address.) controlling our problems on the highways You can't be immune from safety in the through enforcement, engineering and edu- Unit'ed States today, said Mr. Cameron, cation. The safety movement is too comprehensive To correct a false impression: statistics and too effective in saving human life; and say one out of five in this country owns a preventing accidents. Safety has become a car--this isn't true. There may be in ex- modem religion (we all know the meaning istence enough cars to average one out of of a white cane, signal lights, pavement, five, but that won't work out any more than markings, rules of the road, school safety atrols, etc). /On the oth *. fa a , a a il *f ' mg attraction for aU of us-weleft fend to conqum- die sea and then looted to the air. A corduroy road of frozen bodies paves the it would be true to say one out of five persons,owns a cap. WI eV ar4eV/swtliillI wamllKaHtevullUrsl Von*l tUhlVe rIoad both OaSs driven; ^ ^ pedestrians-out of 40,000,000 about 2,000,000 can be classified as trained drivers. way to the poles. _ ... , We have come to realize in industrv that P\**,tade of *** pres"* `S the worker is an asset and that his ihdivid- tten^ong those who lived in the ual safety is a public responsibility, for the ** J *** Today ** smart public pays for carelessness and loss of lifer t"mg ts to nve sa`e y` - the training of new men. <-: - We carry a code of honor in ourminds We are learning to be excessively safe in- when we go out to drive--toprotect the stead of .considering life excessively danger- other fellow^as well as ourselv ous, as we did when the motor age began "Twelve^fatalities for every to alter our lives. vehicle milWtraveled." million TUESDAY MORNING SE ION r, October 8,1940 ^ \ /grbup Session for Traffic Court Judges and Prosecutors i r> ` Presiding: Judge Phillip B. Gilliam, Municipal Court, Denver. Colo., Chairman, Com- . mittee of Traffic Court Judges and Prosecutors, Street and Highway Traffic Section, National Safety Council. rk m m ifiM fii L) 14 29th National Safety Congress The meeting was held for the purpose of discussing such topics as handling juvenile traffic offenders, what to do with the im pecunious violator, and extra-legal penalties. James A. Geroulis, Assistant Corporation Counsel, Department of Law, Chicago,^sug gested that in speed cases involving juveniles in Chicago, parents are brought to court and the judge proposes the defendant visit a specified hospital and donate $5 (or some other amount set by -the- judge) to patients in the hospital. After this is done, the de fendant re-appears in court and the judge discharges him. Mr. Geroulis pointed out that the Chicago Municipal Court considers speeding a social and not a criminal prob lem. Chief Justice Haro: H. Porter of the Evanston Municipal Court disagreed with tins point, saying speeding and drunken driving were legally criminal cases and should be considered as such. One of the judges present stated that onethird of all traffic cases in his city involve juveniles. Judge Harper Harb,' Municipal Court, Little Rock, stated his Cpurt allows juve niles to deposit licenses onSninbr violations for from 30 to 60 days. Judge Hath said he once sentenced a school boy offender to do chores on his father's farm for 30 days. In another case,- he sentenced a minister to attend a violator's school. Judge Gflhijm, in talking about extra-legal penalties, said that Denver drunken drivers formerly were sent tb jail for week ends rather than for 30 successive days when such imprisonment might mean the loss, of in come. He said this idea was a failure be cause many of the offenders would not ap pear voluntarily for week end imprisonment, and when found by the police were often intoxicated. Regarding the impecunious violator. Judge Gilliam said the Denver Municipal Court sometimes suspends sentences when the de fendant cannot pay hut will work it out on some municipal job, such as laboring on park grounds. - TUESDAY MORNING SESSJON October 8,1940 Group Session for City and State Police Presiding: Matthew J. Bolger, Inspector of Police, Traffic Division, Newark, X. J., and Chairman, Committee on City and State Police, Street and Highway Traffic Section, National Safety Council. ' What's New in Traffic Law Enforcement? By A. R. FORSTER Director of Training, Northwestern University Traffic Institute, Evanston, 111. The. fundamentals of a good traffic law enforcement program remain today essen tially the same as they have been defined in recent years. It cannot be said there is much that is new in the sense of radical innovations in policy or techniques. What ever may be classed as new relates primarily to improvement in the qualify of recom mended practices and', in their increasing application, with good results by depart ments throughout the country. To answer the question it is necessary to analyze the fundamentals of good traffic law enforcement, re-examining proved basic concepts and studying their recent ex tension and development It is, however, imperative that we at all times keep in mind the fundamentals of good enforcement if sound programs are to be developed and pursued. There is a real danger, in this as in other fields, of our becoming so concerned with minor refinements and novel ideas that we lose sight of fundamentals and permit our activities to become unbalanced and to develop major inherent weaknesses. This examination of the fundamentals of en- Street and Highway Traffic Section 15 .. forcement logically divides itself into tWo the police themselves, regardless of ob |phases: (I> standards of quality; (2) en stacles to improvement of fsoauj elements of forcement facilities. ' '`'the enforcement program, Uo- apply it selec The first important quality standardis thiit there; must be an adequate amount of enforcement - Studies have conclusively es tively. Proper use of avaiMble''personnel is, moreover, a requisite to the making of re quests for additional enforcement facilities. tablished the definite inverse ratio between ' /Newest developments in selective en the amount of -enforcement and the fre forcement include its more widespread use, quency of accidents. The need for keeping refinement of planning techniques and de enforcement up was recognized years ago velopment of more thorough methods for when die "enforcement index". was first checking the degree of selectivity, actually developed.-The deterrent effect of a given achieved. Many so-called selective enforce . amount of enforcement,' or enforcement mentplans lave not achieved the desired index. Is proportional to the nature of/the? results because of unsound planning. As accident experience in a given locality and ; signments must be based upon study of the' character of the driver group 'under accident records which give a reliable in supervision. These elements being variables, dication of how enforcement may be most it is obvious that what constitutes adequate effectively directed. More widespread recent enforcement will be a variable from place recognition of the fact that selective assign to place. It is, therefore, important , that ment planning does not necessarily constitute each police agency not only hear in mind selective enforcement has led.to the de the importance of having an adequate velopment of performance records whereby amount of enforcement; but dot it define as ^prk.can be decked to determine the actual accurately as possible what constitutes ade degree of selectivity. This is a vitally neces quacy under/its parthmbr conditions and sary followup technique seekr to hold consistently- to that leveL In addition, proper enforcement policies must be developed and pursued. Enforcement is not always applied in strict .conformity with the letter of:the law.. Legislation is , often-modified by. the policies guiding ..en-' > forcement application. Development cif en- forcement policies is justified whenever they ''make possible a better quality of enforce ment Policies , are sound only when they assure s kind of enforcement which assures' proper balance between the noedPfpr rea sonableness and for effectivenessJond when -` Neat is the.need for "post accident" en forcement, orthe direction of attention to violators involved in accidents. This has been widely neglected in the past, bnt there are dear evidences of its increasing appli cation. The development of improved acci dent investigation by police and emphasis on the ac| that; in most cases; thorough in vestigation-gives the officer a legal basis for signing complaints (even though he did dot witness the' violation) are helping to extend enforcement along this line; they are uniformly observed by iall officers Finally, hr the list of standards, is the insofar as practicable. These conditions are need for an adequately high conviction rate -best met whcngeneral control of policy for- and for penalties appropriate to offenses, matron is vested in the., administration. There is growing recognition today of the rather than bring left entirely to individual fact;.that enforcement in terms of arrests officers,, . atone is' almost meaningless. Enforcement l . " is real deterient on potential violators only Selective Enfdrcement when to the probability of apprehension there is added die probability of conviction The. third quality standard is that en- and punishment. This is primarily a court forcement should b^ highly selective; One of responsibility, hot .there are. many things thefmajor weaknesses of enforcement pro-, the police can and most da Among these grams in many jurisdictions is failure to are making proper arrests, improved case , direct effort to various^ times; places and preparation, improved court room demeanor violations in'proportion to their importance and methods of testifying, increased use of in the accident problem. Obtaining selectivity scientific aids to enforcement; such as chem- in enforcement is not only essential, bgtfis leal intoxication tests and formulae for de- also the most logical first step' improver termination of speed from skid marks, the menti It is generally within the power of avoidance of "fixing" and attempting to 16 29thNational Safety Congress "sell" prosecutors and judges on the de needs in this respect are gradually being sirability of good enforcement fulfilled, but still demand considerable at Police need to recognize two important facts: (1) effective court work is dependent upon the quality of police work as well as prosecution and judicial work; (2) the police tention. They indude the appointment of well-qualified commanding officers to traffic administration posts. Such assignments must indude the delegation of authority com cannot reasonably criticize the court or seek - mensurate with responsibility and the de better cooperation unless their own enforce velopment of better programs of adminis ment work'is above reasonable critidsm. trative activity.1 use Son The next element is. personnel training. Facilities for Enforcement One of the most generally encouraging The attainment of these objectives de pends upon several important elements of what may be called the faritities for en forcement Failure to meet standards may generally be traced to some weakness herein. signs in the police field recently has been the growth of interest and activity in per sonnel training. Unfortunately, much train ing activity has not beat of suffident quality to make it effective: Better planned courses and a higher quality of instruction can do much to increase both the desire and ability First is the nature of police organization of police personnel to do a good job. for conducting- the traffic program. The de sirability of specialization has been dearly demonstrated and many munidpal police departments have created special traffic di visions. There is, however, need for refine ment in the'internal organization of most traffic divisions. There is also need for recognition of the fact that creating a spe cial traffic unit does not mean that all other units of the department are relieved of traffic law enforcement State departments, with their limited per sonnel, cannot specialize in the same manner as dties. However, an encouraging recent trend in. rural enforcement is the tendency Adequate equipment, particularly motor vehides used in traffic patrol work, is essen tial. Most commonly observed weaknesses are poor maintenance of motor vehides, an inadequate number of patrol vehicles and failure to provide types of equipment well adapted to operating conditions. Certain advances are being made with re spect to equipment One of these is the growing practice of using motorized officers for parking supervision. Another instance is the. increasing use of sdentific investiga tional equipment, induding chemical in toxication test devices and photographic equipment. of state departments to specialize at least The final dement is the type of tactics in principle by providing special headquar employed. Despite the importance to an ters units for planning and supervision of traffic activities and by devoting a greater portion of personnel to traffiq^enforcement effective enforcement program of the meth ods employed in its execution, there is still much non-uniformity and a widespread use More attention is also bdng)given, as it of inefficient methods. should be, to/tindfeirable practices which, to a great extenVqualify the potential ad vantages of specialization. Among these, are failure to employ selective assignments Practice and opinion vary so widdy on many tactical questions that it is difficult to summarize the situation briefly, par ticularly with respect to such issues as the and the drains upon -patrol strength for relative merits of one or two-man patrols, : special details. The former has already been the desirability of open view patrolling as mentioned. Special details should be handled opposed to semi-concealment methods, or only when the public interest is served, and motorized traffic patrol officers should not be assigned to them unless absolutely neces the conspicuousness of traffic patrol cars. However, there is evidence of growing ef forts to determine factually the desirable sary. practices to follow. Administration There is a growing realization of the critical importance of administration to the success of an- enforcement program. The Two new developments in the field of enforcement tactics, are outstanding .in re cent refinement and more widespread use. These are the employment of devices to check speed over measured distances and the Street and Highway Traffic.Section- 17 use oi the "traffic sampling" technique. ) Some cities have found these speed check ing methods safer and more effective than the more commonly employed method of pursuing and pacing speeding cars, although there is still some question as to the extent to which it should' be employed. The sam pling technique has, in various forms, often proved effective in detecting violations which frequently pass unnoticed and in creating a greater deterrent effect, partic ularly on such violations as drunken driving and operating defective vehicles. The most outstanding recent development in sampling techniques has been increasing popularity of the "blockade" method. Experience has shown, however, that this must be applied, if at all, with considerable discretion. It must avoid the aspect of a drive, must be as selective as possible, should not occasion undue inconvenience and. should not inter fere with the maintenance of regular en forcement work. Statewide Coordination of Traffic Enforcement Activities By P. T. BEVERFORDEN Sergeant of Safety and Education, Indiana State Police, Indianapolis, Ind. Present day traffic, being of more than purely local, interest, has produced a great number of problems which are compara tively new in our work. These are problems which require and involve the active co ordination of all policing agencies. Having been in active police work for over 10 years, 1 have seen a great deal of the petty `jeal ousies and scrambles for credit that have existed between our various federal, state and local police departments in regard to criminal activities. In some instances we are beginning to see the same thing in traf fic work. One of the major responsibilities of every, organization interested in traffic enforcement today is to realize, that per sonalities, egoisms and getting the credit have no place in their program. Going even farther, they must use every possible means to combat these very practical enemies of cooperation that are steadily undermining the efficiency of modern traffic control Too many excellent traffic programs have failed completely because some superior officer took newspaper credit for an outstanding piece of work done by the man on the beat To me, the coordination of traffic en forcement activities involves more than just an understanding of uniform procedures between police agencies. Coordination is es sential to each agency. We have all seen the police department when the detectives refuse to do traffic work and. where thetraffic officers pass np criminal work. The training program that produces such condi tions is bound to fail The coordination of which I speak involves a definite under standing between every officer in all depart ments as to his own powers and duties and how they fit in harmoniously with others. In Indiana the facilities and personnel of the state universities, the Automobile Pro tective and Information Bureau, the State Police Chiefs Association and the State Municipal League have been used in coop eration with the State Police in a complete service and training program for all police agencies dealing with traffic problems. Our sendee and training program orig inated in 1937 when the Public Safety Insti tute of. Purdue University, the State Police and the Automobile Protective and In formation Bureau began offering assistance to any city or count}* police department in installing scientific accident prevention bu reaus and conducting- in-service training. Staff menribe^i from each of these organ izations Were assigned to work directly with alt police1 agencies in the state at no cost whatever to the agency requesting the sgpttces.. At the very start, the cooperation {Of; the Indiana Police Chiefs Assoriatioh^itie Indiana Traffic Safety Council and the In diana Municipal League was sought and ob tained. The support of these groups has largely accounted for the success of the program. Accomplishments Since 1937, the following work has been completed by the cooperating groups: 1. Complete police department surveys, including recommendations for improve ment were completed in 12 cities of more than 15,000 population. \ ) i 18 29:h National Safety Congress 2. Re-organizational programs including the installation of accident prevention bu reaus, personnel and record systems, accident reporting systems, "no-fix" ticket systems, warning ticket systems and general pro cedures for determining a selective enforce ment police were completed in six cities of more than 25,000^population. 3. In-service training programs for the police personnel were completed in seven cities of more than 25,000 population. 4. A one week intensive basic course for traffic officers from cities under 25,000 popu lation is conducted each year at Purdue University' at no cost to the attending offi cers. . ... 5. Direct in-service assistance.,is rendered to all officers , who attend the Purdue school in setting up report and record systems, ticket systems and general enforcement ac tivities in their own departments. 6. Special re-training courses and follow up assistance is given in each of the cities where services have been rendered. Staff members spend at least two days each month in follow-up work in each city for the. first year. 7. Shorts conferences and assistance to police officials in 21 cities on general traffic enforcement problems. 8. In-service assistance to eight cities in conducting traffic studies and surveys in conjunction with the other enforcement ac tivities. Our purpose in conducting this type of sendee and training program in.Indiana is to bring about greater coordination of en forcement activities and methods and to assist in the development of well, organized and fully* trained police departments. Each phase of the program is designed to assist the department in doing the type of. en forcement^job that , will result in reduced loss of life and property. Examples of Results Munrie, a dty of 50,000, experienced 13 traffic deaths during 1939, nine of these during the first seven months of that year. Following the installation and training pro gram, Monde went through the first seven months of 1940 without a angle traffic death and is one of the leaders in the Na tional Traffic Safety Contest Anderson, an industrial dty of 45,000, ex perienced eight deathless months following their installation and ' training program in 1939. During the preceding year of 1938, Anderson had eight traffic deaths. These are,, of course, some of-, the cities where the best results, have been'obtained, but every dty c in which our group has worked has shown a definite reduction in deaths over the average of tire preceding three years'record. , We feel that we have a practical program in Indiana for the training arid assistance of all police groups. The responsibility for the teaching and research is centered in the state (Purdue) university where it rightfully belongs. The services are available at no cost and at all times. Staff members, who direct the program have all doneactual po lice work. For those of you who'might be interested in. conducting any phase of this type of activity let me offer a few sugges tions in the form of cautions which. I feel may save you a number of headaches. These don'ts we have learned through the school of mistakes and experience. 1. Don't attempt to force yourself or vour program dther directly or indirectly on any police offidai or group. Too many training and service programs have been "sold" to police officials by over-zealous dtizen groups only to fail because they were not sincere. 2. Don't feel that by selling the Chief of Police or Mayor of a dty that your job is completed. Many service programs have col lapsed because the officer on the street who must do the actual job is not completely sold on your program. 3. Don't play favorites in choosing per sonnel for traffic ditty. Merit only should count. When antagonism is aroused be tween the men in another division toward those in traffic tire program cannot succeed. 4. Don't neglect the officer on the beat in your training program. Too much special ization can ruin any department Every po lice officer can and mustbe a part of the traffic enforcement program We try to fully train every officer in dries under. 75,000 population. Even in larger dries every officer should, receive at least a short train ing period. 5. Don't criticize present methods too strongly. No police officer likes to be told that his way is not the best way of doing a V ' )L Street and Highway Traffic Section 19 certain job. Offer a factual and balanced port the work of the police department In program with proof of results and criticism general, we 'try to assist in any and all ac will not be needed. tivities that willpbtain the needed support for the police efforts in a well-balanced pro What Is Included? gram. Much of the follow-up work done by our group consists of activities to gain this First, just what is included in,a typical support. in-service training and assistance program?' The first step necessary, of course, is a sin- - V\ Recommendations cere.desire for it, on the part of the city*. In answering.the question further let me.~re l " \ ' ' f -- ' In .-summarizing, let me enumerate the view briefly a typical installation under our specific services wd'offer to police groups in own-general plan of procedure. . ; Indiana at the present time through our Early in 1939 the Institute received a re cooperative program: quest from the Mayor and1' Chief of Police 1. In-service training and assistance, in of Gary, to assist them in the re-organiza- . cluding police department surveys for cities tion and training of their police traffic di of more than 15,000. vision. The first step was making a com plete survey' of the police department Upon completion of the survey a list, of 48 defi nite recommendations were submitted, to the Chief of Police and other city officials! These included recommendations on equip ment, records, selection and training of per 2. Advanced training courses in city por lice departments where basic in-service schools' have been conducted. 3.,-Basic and advanced training courses at Purdue University for police- officers and administrators from cities under 15,000. sonnel and on organization and selective 4. Regional training courses . in various ^ enforcentet procedures. The report was ac -parts of the state for police officers in the cepted and the program was started. More regional area. Classes are held one after than 10 weeks were spent by. our. group noon each week for 10 weeks. working directly with the Gary Department-; 5. Special short courses for police recruits at no cost to the city. Selective examina to be held. at 'Purdue mid* in the larger tions were given and the traffic personnel cities..- was. increased from 18 men to 36 men by a ... A Direct in-service assistance to police re-shifting of divisions. No additional offi 'departments and city officials on public cers were hired. Two weeks of instruction safety problems. were given to the men selected for traffic and a permanent training program was ar ranged. Courses'taught in the school in cluded accident investigation, first aid, re-, ports and records, law of evidence, driver y 7. Development and promotion of uni form standards for recruiting police offi cers, personnel ratings and general enforcernent activities. psychology, selective enforcement; court 8: Inrsrint assistance to police officials procedure; photography, field work, hit and in ,setting~up administrative,, organization run investigation and others. The .Old offices and training programs, personnel and record of the traffic division were re-vamped and systems. the necessary report and record systems in 9. Development and promotion of legisla stalled. On May .15, the five trained acci tion designed to benefit the individual police dent investigation squads and 13 trained officer and the police profession. motorcycle officers began operating. 10. Studies and research on police prob In each city members of our group assist the police department in other phases of the balanced program. :A day by- day series of- lems with the university acting as' a clear ing house for information of value to all police departments. publicity releases on the enforcement activ We have been more than pleased with the - f ities of the police department are'given to demands for services which have come in"' the local papers. Speeches explaining' the from police agencies in all parts of Indiana. purpose of the police program are made be With only one staff member assigned on fore local citizen groups and service dubs. full time from each of the cooperating Tn two. cities our group actively assisted in agencies and with the present facilities the organization of a safety council to sup available through the Public Safety Institute (3 20 29th National Safety Congress of Purdue, our present program must, of necessity, be somewhat limited. The serv ices' which I have mentioned are, at present available only to police agencies in the state and the program is financed entirely by the cooperating groups. We feel that the. combination of. the teaching and research facilities of the uni versity with the practical and valuable ex perience of police officers has proven its effectiveness as a worthwhile activity. Idea Exchange Conducted by CAPT. JOHN M. GLEASON Traffic Division, Police Department, Greenwich, Conn. . The group agreed that it is vitally necessary to sell, the men in the Department on the safety program before attempfing.to sell it to the public' It was brought-oyt that sending men to traffic.schools builds up their interest The issuance of a house organ is also^ an effective means of maintaining m- Lynn, Mass , held a three-day pedestrian clinic. Eyes were tested and reaction times checked This proved to be very popular, it was reported. Toledo, Ohio, has famished maps to tfae safest route to Some -^OOO were distributed. One newspaper. feature article suggested was "Around the dock in traffic safety" which depicted the police at school crossings, a motorcyde man apprehending a speeder, an accident squad investigating an acddent and attending the injured parties ed a maintenance crew working on traffic lights and signs. Dayton, Ohio, has open. safety meetings conducted by police for fleet operators. .. San Antonio has conducted, a "man on the street" broadcast in which courteous and safe drivers were interviewed. Substantia! prizes were given, such as a year's supply of gasoline and a complete set of tires. The programs were broadcast twice a week, Q house programs at police head quarters {or dvic groups proVed to be popu- jar The acddent prevention activities of the'department are emphasized at these open houses; TUESDAY MORNING SESSION October 8,1940 ( Group Session for Public Education and Safety Organization Presiding: Carl J. Rutland, President, Texas Safety Association, Inc, Dallas, and Chair man, Committee on Public Education and Community Organization, Street and High way Traffic Section, National Safety Coundl. , The Community Safety Council By GEORGE M. BURNS Director, Kansas City Safety Council, Kansas City, Mo. . Whenever we attempt to discuss' com- varies extremely in the different cities. Some munity safety coundls from a national view- . of them are financed, by and are a part, of point, we must realize that the organization the chamber of commerce, some ^are oper and financial set-up of these safety coundls ated with funds from community chests, au- , - .. Street anft'4ftghway Traffic Section 21 tomobile clubs, and in many other ways. Top Men Needed This being' the- case, -1 will stick closely to the Kansas City plan.. Since the community safety council works Back in 1921, when there were only 45,000' motor vehicles registered in"Kansas City it was discovered from the meager records that' 71 persons had lost Uieir lives as a re sult of motor car accidents. This was an alarming situation. It was decided- that a community safety council should be organ ized in Kansas Gty. Not only was the Safety Coundl organized to study the local problem as it pertains to traffic safety,, but, rather to stimulate interest in safety in ail its varied forms. It was the hope of tiiis group of busi ness men that the efforts of the safety coun cil might check the rate at which accidents were increasing each year. The Safety Goundl is not a-branch of tlie.dty govern-, for. the welfare and safety of all the citi zens, w-e must have only the most influential citizens of the community as officers and personnel on the governing board. Top men must first be sold on the need for safety be fore any great results can be obtained, sec ond, the names of these men lend prestige to the organization and cause Mr. Average Citizen to feel .that if John Jones, the presi dent of one of the most respected banks of the community, is affiliated with the safety coundl it really must be a worthwhile proj ect and merits his support and cooperation. These people are also, of vejry- material as sistance when there is need for new* or spedal legislation. ment or. the police department, but, rather, is composed of representatives of business firms and individuals who.' not only- furnish To the end that accomplishments may re sult, the safety council' shoald always act as a coordinator for all interested agencies the necessary* finances but also supply the membership for committees. As an1 out growth of-this early organization, we now- have a community- safety coundl with a membership of over 300 firms and indi viduals. in the promotion of community safety. The reason for this is very evident when we con sider' that if the police department, the dty administration, the schools and other inter ested agencies conducted their own program there would be a great deal of duplication The working organization iconsistr'of an executive, committee wnosejprindpal func tion his-'to do with thebtidgeting and ap proving of the financial expenditures and a Board of Governors comprised {of) approxi mately 75 representative business men and public offidals wh6 determine the polkies of. of effort and many things,attempted which would be directfy.the opposite of one an other. With such administration of a safety program, it is readily seen that the all-im portant general public would become con fused and the program would bog down with no tangible results being achieved. the organization. as you know, the public must be informed Since-the Kansas City* Safety Council was of the necessity, for new legislation or en first organized, it has operated as a strictly forcement and favor, it before it can ever non-political, non-profiting organization for hope to be successful. Many of our best the. prevention of acddents in the home, on programs for traffic safety have met defeat the; streets and in the industries.. The work because the people were not informed about of the safety coundl is handled through its what could be accomplished. Since the com various committee with their recommenda munity safety council is an unofficial organ tions being submitted to the Board, of Gov ization, it is the group which can best take ernors before any attempt is made to put to the public, the problems of traffic safety them in operation. The basis upon which and the proposed plans for the corrective these committees proceed with tittir prob measures needed to solve these problems. lems^ primarily that the solution lies , in The reason for this is apparent when we the application of engineering, education and consider that should the.proposal come from enforcement The Safety Coundl Is oper the Mayor, for instance, the members of the ated on the basis of the exchange of ideas opposite political party immediately form with the hope, that as a result of keeping the opinion that he is merely building cam the public informed through the press, radio paign material. With this type of reaction, and other advertising -media, we may be to the program, it is easily seen that after able to obtain a continued strong public sup a few members of the dty coundl hear com port. plaints of- this nature, they are likely to at- i & j.r : ir P**B *. a; 22 29th National Safety Congress tempt to curry favor of the generic public in their desire for re-election and pass ordi nances which would totally block the traffic safety program. Reaching the Public Now, how does the community safety council reach the people to ^prepare them for new methods of traffic control? We use every known form of publicity to accomplish this sometimes colossal task. We supply speakers for radio broadcasts, luncheon clubs, parent-teacher groups, churches and many other civic groups. The community safety council prepares and distributes thou sands of copies of material telling of die problem and calling for the support of the general public in the undertaking to save lives in the city. All of these things have a tendency to stimulate a desire for just the things which are needed. To reduce the pitiful slaughter of our children, the safety council began organizing junior safety councils in the schools.. These proved to be very popular and very, effec tive. Now die safely council sponsors and furnishes all needed'supplies to, 105 junior safety councils m the public arid parochial schools. In 1937, Kansas City won national acclaim for completing 430 days without death to a child under-15 by a motor car and we were able to go more than two years without death to a child of elementary school age. At the present time, because of the splen did work of our junior patrols, no elemen tary school duld has been killed by a motor car while going to and from school for a period in excess of five years. We fee! that the activities of this group played no small part in making, possible the winning of the Grand Award 'in the National Traf fic Safety Contest last year. One other ac tivity of the community safety council which plays a very definite port in the traffic safety program is the work that is done with the fleets in.the promotkn of safety. In Kansas City, we conduct a contest with 69 fleets operating some 2JOOO vehicles. The results of the work of the community safety council are intangible; we cannot sty that we have saved a certain life or that we have-prevented a specific accident How far our work extends, no one can tell, be cause we measure results by accidents that might have happened, bat did not The Traffic Safety Commission By RALPH W. ROBINSON National Safety Council, Inc, Chicago The Traffic Safety Commission is a body -created by ordinance composed of respon sible public officials and a. number of dvic -and business representatives. Its operating expenses are provided for in the dty.bndget It has a full-time, director with an adequate staff. Its budget provides funds for. educa tional and other safety activities. The functions are to coordinate and stim ulate the activities of the official agencies -concerned with the traffic safety problem and die private agencies which, can be of service. The Safety Commission is a special educational institution. The Commission is designed to provide leadership for the traffic safety movement and to marshall all the available forces within the community in a well organized, systematic attack against traffic accidents. It has no absolute, direct authority, but it has in its membership, on its working com mittees, or otherwise associated with it, those public officials who do exercise all of the authority of the city government relating to street traffic safety. Its fractions are primarily advisory and educational. The power the-.commission can wield is the power of organized and special ized knowledge, and of cooperative effort. In my opinion it would be impossible; under the American conception of-govern ment; to give to any one official agency ab solute authority over all governmental frac tions - concerned with the traffic accident problem. Some of those functions.are: legis lation, police; prosecution, courts; street de sign, construction and maintenance, street lighting, control of public utilities using the streets, fire prevention, traffic engineering planning,- city planning, erection and main* VV Oi Pres tack. idly. Out at a f A"! ganiz: condo state. I be vincec liketl slant I Street and'Highway Traffic Section tenantc' o! traffic control devices* budgeting ThVpro^esses are scientific. That means amftkxatipn, and public schools. ` patient investigation, the' gathering of per When you consider all these (unctions tinent factual data, ..and. the interpretation which have some direct bearing upon traffic of such facts in terms of improved depart safety," aiid^vhicfi operate more or less in mental action. . Promulgation to the public dependently/ controlled mostly by the city . of interesting factual material and of the charter atM>a mass of ordinances, it becomes " highlights of plans being developed or ap quite apparent that some means must be de plied for the protection of the public is an vised to coordinate their traffic activities, if important part Of the Commission's work. the city is to gain real control Of traffic That is essential as a means of. building accidents. ' ~ public support for the application of sound Some means must be devised to: educate accident prevention measures. the responsible public officials in the modern Studies of this nature, and especially ma techniques of traffic accident prevention; and tured plans for .betterment, or action under to stimulate the adoption and application of way, furnish a splendid basis for public improved practices. safety education. Education founded upon The safety commission is designed tabring such matters can be made interesting and about a meeting of minds through frequent vital. In my opinion that land of education contact, and through, factual studies indud-. commands far keener attention than safety ing studies of the activities of the several education based upon platitudes, general departments bearing upon traffic controland statistics, and personal opinions. . safety. These studies measure the results be A Traffic Safety Commission of .the kind ing obtained. Comparisons are made between the practices being carried on by the city, and the. methods of accident prevention . which ` have proved especially effective in other cities, to determine the feasibility of adopting better methods. ' - just described has been established this year in Portland, Ore;, a city of 310,000 popula tion. It is.in successful operation, and is now conducting its activities aIong;Tthe lines I have described. Organization of the States Safety Council for Traffic Safety By HAROLD L. MUELLER President, Oklahoma Statu Safety Council Associate Editor, The Daily Oklahoman - - ^ and Oklahqma City Times, Oklahoma City, Okla. > I cannot understand a campaign that too When I first became acquainted with the often appear^waged on the,theory that the1' existence of a state safety council in our way to vanquish^the enemy is to whip him state I was not convinced it was an essential '?on the head'trittf a pamphlet or a tabulation.' element in success of a state program. Inexperience may be the explanation of, I could not. see, for instance, why a state my impatience with slow progress of the at safety program could not be conducted ef tack. Possibly, gains cannot be made..rap fectively :by our state department of public idly. I don't know. r safety. Out of a short experience I have arrived at a few conclusions. ' There' is a safety program in Okla homa because there is a state safety council and whenever; or if, the state council-goes A'state safety council or a statewide ganization of some land is essential to or* the , program will collapse. We have a: /department and a highway patrol, in conduct of a militant safety program ra any our-smte because a safetycotindl got the state. department created and the patrol estab I believe this because I havebecome con lished. We have anroffidal attitude favor vinced that tbe reduction of. traffic accidents able to safety activities`because of the un likethe preservation of liberty requires con tiring efforts of a safety council stant hammering. I can say tills because the Credit for these QA state council is the hammer. > - accomplishments goes to others; not to me. <j Street and Higlnvay Traffic Section 25 The emphasis seems applied in the fol caused among drivers by concern over the lowing order: Education, enforcement, en war arc a sufficient explanation for the in gineering. crease in motor vehicle wrecks. 1 think re I do not believe this order of emphasis , is laxed enforcement, which the public seems getting maximum results. At least, not maxi to prefer--althongh it expresses itself mum immediate results. ... . otherwise when questioned--accounts consid The order should be revised to put en forcement first, engineering second and edu erably for.the rise in the accident line on the 1940 chart. cation third. Where greatest responsibility' rests and I say this' because I believe I perceive both bull-headed resistance and scornful in difference to die present style of traffic, safety education. where largest Iresults can be obtained with a given amount" of effort are controversial question^.^Sch each safety council must stiidv earnestly! People want to know who's telling them how* they should drive their automobile: They bought it, didn't they? And they have a right to drive it, haven't they? They drive as safelyas they think necessary. . Decision of the majority then should guide the council's activities. There is a tendency to go off on tangents and make problems seem harder than they are. After all, there are only three elements embraced in traffic: The driver, the car, and the road What are the stories in the newspapers way upon wrhich the driver operates his car. that have a deterrent effect on reckless, careless and illegal driving? I believe they are the stories of two kinds: Those that re port strict enforcement; and those that re late the sordid details of bloody accidents. The car is farther advanced*, than the other two. Roadways need to be better en gineered. But if every new mite>built in the United States is engineered perfectly from the standpoint of safety there still will I hate to think we have to kill somebody be hundreds of thousands of miles of obso in gruesome fashion every day or so. and lete and hazardous slab. We can't remake spread the story across die pages of onr our highway system overnight It would newspapers to scare readers into decent take'' hundreds, of millions of dollars of driving. ;fr ' money we haven't got We have to replace \ There , is a weakness, too, in the'horror poorly-engineered roads with modem roads / type of accident story* Prom the standpoint as w*e can afford to do so. of education. Though it may cause the reader to pause and think he is likely to shrug his shoulders and say, "That will never happen to me." We have left only the driver .to work on for immediate results. Appeals don't seem to register very strongly on him. It looks like he has made stiffened enforcement im The accounts of strict enforcement-- perative. vigilant patrols, many arrests for violations, courageous prosecutions and certainty of punishment--register effectively on every .in dividual. ij Safety councils must support the officers who are faced with this unpleasant task... And they must realize that if stricter en forcement is to avoid public kickback the 1 don't feel that increased traffic on the laws, rules and regulations enforced must highways this.year and the element of jitters hc'sound and sensible. TUESDAY AFTERNOON SESSION October 8,1940 General Session Presiding: Judge Harry H. Porter. General Chairman, Street and Highway Traffic Sec tion, National Safety Council ;;; 26 29th National Safety Congress Selling Enforcement to the Public By ELIOT NESS r Director of Public Safety, Cleveland, Ohio lu the past traffic enforcement was a rela _ The bureau supplies newsworthy informa tively new problem. When they were picked tion which subtly promotes the enforcement tip for some infraction, respectable members program to newspapers; scripts, were writ of society were subjected to police regula ten for radio programs and a speakers' bureau tion for the first time in their lives. set up to furnish speakers to dubs, industrial To most policemen of the period, a vio meetings and various social gatherings. lit lator was a violator; no matter whether Ms erature was widely distributed as well as arrest was of a criminal or traffic nature. posters and signs obtained from generous As a result; respectable citizens were humili firms. Trade papers and foreign language ated and mistreated because they were sub publications were regularly supplied with jected to the same treatment as thieves and appropriate articles. criminals. The educational program was laid out cm The enforcement was wholly unrelated to a selective basis. Hazardous practices were traffic experience. Spasmodic drives and speed traps became common and traffic ar rests tended to become merely an excuse specified and attacked, dangerous places and locations concentrated on and accident-prone groups reached. for raising revenue. The result of all this was that hostile Consequently, the public became very hos public aittitude gradually changed to a friendly tile toward traffic enforcement policies of and cooperative spirit when people learned police departments. that the . police program was based on ah It was not long before intelligent police officials saw the necessity for a fair and honest and real need for the betterment and good of the entire community. effective enforcement program as well as a The police strategy board decided upon friendly public relations program. and guided the public relations policy. A monthly luncheon meeting was held, spon Accident investigation was established on an exhaustive and scientific basis. Squads were set up on a selective enforcement basis, every accident was carefully investigated by trained officers and complete information gathered. The accident facts were interpreted sored by the safety council and under the chairmanship of the director of public safety. It was attended: by top-ranking members of the police department and officers vital in traffic safety, as well as invited guests. by experienced officers and traffic engineers. Reports were read from the traffic en Officials were now in a position to know gineer, the traffic statistician, public relations when and where accidents were occurring, bureau, diild safety division, enforcement. their types and, finally, why they were oc bureau, traffic post division, etc Suggestions curring. and ideas were introduced freely and openly With all this data before them, police of discussed by the entire board. ficials could now determine accurately the Judges, police, prosecutors, reporters, city proper attack necessary and ware in a posi officials, etc, were invited to participate tion to go before the general public and whenever their experience and position was explain their problem. The'police explained . believed to be of value in connection with what they were planning to do and why, as . some problem. Awards for the safety con well as what they hoped to accomplish. This test were presented at these meetings. Th< those port. revise all th mitte* 1. 1 toxica scene evider fense; drinlri of an ZC in tlu with i was substantiated , by authoritative statistics. The meetings of the strategy board have toms,' A well-promoted educational program was done a great deal toward originating effec for re found to be the most effective and desirable tive weapons and methods for traffic enforce tions way of selling enforcement A public rela ment They have encouraged suggestions and I coordi tions bureau, or a comparable body, was set ideas from all members of the police depart 3. 1 up to act as a liaison and press agent for the ment and have served , as an efficient and is rec police department Officers were carefully effective means of consolidating and formu enfon selected for special abilities along this line lating a successful policy for traffic enforce that a and were assigned on a full time basis. ment and safety. I be on* Street and Highway Traffic Section 27 Report of Committee on Tests for Intoxication By DQN-iR. STIVER Director, Indiana Dept of Public Safety.and Chairman, Committee on Test* for Intoxication The following is the Summary of Com 4. Chemical teste of body fluids or breath mittee Recommendations presented in die should be used in all cases where drivers 1940 Report of the Committee on Teste' are suspected of being under die influence for Intoxication. The complete report -is of alcoholic liquor, as. a supplement s the available in pamphlet form from the Cotm- officer's examinations. They should'be used al's Traffic Engineering Bureau. ' also in questionable cases involving pedes- Daring the past year, the Committee has . trians suspected of bring under the influence continued its program of promotion of scien of alcohol. tific teste. In addition, it has undertaken 5. Clinical examinations by physicians are three projects which are reported upon in recommended at least for those cases in the report. These are: . which the person has bear injured or com 1. Study dad preparation of. recommenda plains of illness. tions on methods for handling drunken pe .Obtaining Specimens destrians. 2. Study of tolerance to alcohol. 3. Study of legal problems relating to compulsoiy tests. Also, the 1940 report contains information on new accident facts, the growing use of chemical tests, methods for training police in use of scientific tests, and. methods for de veloping interest and support among officials and the public for such teste. 6- S^edmens for chemical teste should be taken/as^ri^on as possible after the accident - or violation, to penmt^mSre. accurate esti mate of the degree of'intinence of alcohol at the time. In important cases, samples of two body different materials should be taken, or a second sample of the same mate rial should be taken at a later tune, to pro vide evidence for a more convincing case. 7. Whenever possible,, sufficiently large . Summary of Committee .specimens should be taken to permit dupli \ Recommendations cate tests when a case is to go to court. ./ The following recommendations include A .portion of the' specimen always should those which were made in the progress re be retained in a tightly stoppered container, port in 1939. They are presented here in sealed and kept m a refrigerator until the revised form as a complete summary of case is dosed to give the defense an op all the recommendations made by thc Com- portunity to make a check test mittee: r Borderline Limits Examining Suspected Persons 8. When the. concentration of alcohol in 1. In every' examination to determine in the blood is above 0.15 per cent,- alt persons toxication, questions should be asked at the show a definite loss of that clearness of scene of the accident or violation, to collect intellect and control of themselves which evidence for rating out possible false de they would ordinarily possess. The Com fenses of illness, injury, taking of medicine, mittee recommends therefore that blood al drinking since the accident, or non-operation cohol concentrations above 0.15 per cent of a motor vehicle. should be considered as definite evidence 2. Officers should be thoroughly, trained that the driver or Pedestrian was under the in the examination procedure, particularly intiuence of alcohol with reference to observing objective symp 9. When the level of alcohol in the blood toms, and should use a special report form is 0.15 per cent by weight or below, a great for recording answers to questions, observa many people will be under the influence tions of physical conditions, and results of of alcohoL The Committee .recommends coordination tests. prosecution in-such cases when the circum 3. The Alcoholic Influence Report Fonn- stances and results of physical examinations is recommended for use by city and state confirm such evidence. However, when the enforcement departments. Parts of the form level is below 0.05 per cent, the person should that are not adapted to local conditions may not Be prosecuted for such a charge. he omitted so as to shorten it 10. The Committee recommends that in .4: 28 29th National Safety Congress every case all available evidence of abnormal actions or conditions should be obtained to permit presentation of a more convincing case, even though the blood alcohol concen tration may be above 0.15 per cent Legislation and Definitions 17. A person who plans to make chemical tests for possible court use should first make, a complete set of control tests to establish his range of accuracy. The analyst then will be able to testify in court on his ability to make the tests without appreciable, error. Only those who have had thorough training 25.1 prograi looking Commi year, I (I) pn 11. Each state should consider the adop should be permitted to make the tests. tion of legislation dealing with the use of evidence obtained from chemical tests. The wording of the provisions of the new Indiana law (Chapt 48, Art 5, Sec' 54, par. 2, 1939) is suggested as a model for states. 12. There should be a state law or city ordinance providing definite minimum penal ties for a pedestrian under the influence of intoxicating liquor while in a cross-walk or on a street or highway. This might be in addition to the usual law* regarding public intoxication, and would be based on need from the standpoint of protecting pedestri ans from traffic accidents.' 13. The phrase "under , the influence" should be used in place of the term "in toxicated" in laws and ordinances. Legal definitions of the phrase "under the influ ence" should be improved, clarified and made more uniform. The Committee sug gests adoption of the Arizona definition as one step in improving legal definitions.* Setting Up a Testing Program . 18. The Committee strongly recommends .that the testimony in court with reference to the effects of alcohol and the meaning of different body fluid concentrations be com mitted solely to competent specialists who have thorough knowledge of the literature and an adequate experimental background on the relationship between test results- and physical impairment -19. ATee should be paid for the analysis of tit&^g^rimens.especisdly when the analy ses are made in a private laboratory or by a private physiaaru ln cases involving con victions, consideration should be given to in- dhding the fee as a part of the court costs. When this is done, suspects should be ad vised of the procedure. ' 20. Gty and state enforcement. depart ments should Work with police surgeons, physicians, hospitals, departments of health, and other technical persons or departments in the establishment of cooperative arrange ments for making chemical tests and for 14. Before using chemical tests for en presenting expat testimony. forcement purposes, a carefully planned edu 2L Ultimately, a state-wide testing system cational program should, be carried on for should be adopted in each states with Stand several months, to stimulate interest and ardized laboratories, preferably approved by to obtain support from judges, prosecutors, state departments or courts, set up in cen police officials and the public in the new trally located districts. . program.** 15. Police, chemists and others who will be handling specimens for chemical tests should be given thorough training in the proper procedure for handling the speci mens so that results of the tests can be ad missible in court*** Other Recommendations 22. Educational information should be pre pared to inform the public in a more spe cific manner of the hazards of driving or walking after drinking and Jo^develop pub lic support - ' 1& The Committee is of the opinion that 23. Educational and enforcement methods most of the commonly used chemical tests* should be directed at drinking pedestrians are satisfactory provided they are properly on streets and highways as.well as at drink made by. competent and Well trained per ing drivers. sons. For practical medico-legal purposes, 24. The Committee recommends the use the methods when properly used can be of chemical tests in civil as well as in crim considered as specific for alcobolt inal cases, and recommends also that their f; `Steffani vs. State, 42 Pac. (2nd) 615. use be considered by industry in.determining See discussion in complete report. intoxication of employees when necessary. `Instructions for examining suspected persons and obtaining specimens are given in a mimeo fA descriptionof several test methods is given graphed memorandum "How to Handle, die in the 1938 Committee .Report. Copies of this Drinking Driver," available from the" National report are still available from the National Safety Safety Council. Council. Street and Highway Traffic Section 79 25. The Committee should continue its , bgram of scientific study and promotion, looking forward to completion of the final Committee report in 1941. During this next year, particular attention will be devoted to (1) promotion of scientific methods and of legislation, (2) completion of study of com* pulsory tuts, (3) study of tolerance to al cohol, and (4) development of an administra tive procedure for cities and states in carrying on a procedure of chemical tests. Report of Committee on Speed Regulation By D. GRANT MICKLE Traffic Engineer, City of Detroit, and Chairman, Committee on Speed Regulation, N;& C. Daring the past year, it was planned to material on speed control, to attempt .to ; complete the stagy of the entire speed prob harmonize conflicts in data or statements, lem by gmng spedal attention to speed en and to select materials for educating the forcement; educational materials rdating to public on control of speed, for safety. The speed and speed regulation, and .to complete various .means for carrying- on the educa the study of speed control in municipalities. tional program also yverei to be studied. Three sab-committees were appointed to Subjects relating V speed. control on accelerate these studies. which the public ,should be informed were It was hoped to have the final Committee subdivided into three classifications: report ready for presentation at this. time. However, a great deal of material and sug gestions were assembled by these Sub committees, and it was found that' more time was needed to finidi the job. Hence, . 1. Need for operating at reasonable speeds. 2. Education on speed limits and on en forcement policy it has been derided to present a brief report 3. How to adjust -speeds to conditions. of progress at this time, and to delay com The Sub-Committee on Urban Speed pletion of the final report until at least some Control has concentrated its attention pri jie early next year. marily on development of an, urban speed The three project Sub-Committees which control program based upon the speed pro have been working daring the past year are visions as 'given' in Act V. of the Uniform as follows: <* Vehicle Code. This speed control program 1. Subcommittee on Educational 'Mate s includes (I) setting proper speed limits, .(2) rials, Professor C C Wiley, Chairman, c establishing speed zones where necessary, / 2. Sub-Committee on Urban Speed Con trol, T. J. Sebum, Chairman. (3) carrying on an edacational program, . (4) reasonable enforcement of speed regula tions. 3. Sub-Committee on Enforcement of; Speed Regulation, Captain C J. Seavarda. Chairman. The Sub-Committee on Enforcement was appointed to develop a policy for the en forcement of speed laws. Such a policy was . This progress report contains a brief desired as a guide for police administrators summary of the activities of the Sub-Com when preparing instructions for patrol offi mittees, and a review of'the major recom cers and as an aid jn.achieving a proper mendations. During the remainder of this year and the first part of next yeu/itjs . balance between, enforcement of other traffit^tegulations. -- speed and awsppptrloaaeilrtrnlsetenesoaenauswdtoenthlndditniaocimebnhlpemitrnheuwepsespiaotltpelrhmee^redhesttehuidecemrpsotrm.afne;initaclraeroitdlzhl ieeCnpgoerimosrnesgfmpeoranorittmmrtitarsialrsVatfiooneodr-nf'',^dnoethenmisepTfhomaherreectnsmehpfodmeEericncteniiegtfnfsiompct rsoteci^onfensstmsattprprdeeueoosneclspitdtcitoytrShenaegursebuunct-lnoeoaCiemtfoioodommfrn'fmfimesconeairrtdpctneesaodee&llil'HtcjspopyJyonfrufdtelihocecrere-r ' > Review of Sub-Committee Reports : . Sab-Committee tolerance woum-eost only The Sab-Committee on Education was as may he necessary to tain into -aCcpunt appointed to review existing educational possible errors in speedometers and in pac- . 30 29th National Safety Congress ing. Much of the enforcement would be conducted under the base rule that no per* son shall drive a vehicle on the highway at a speed greater than is reasonable and pru dent under the conditions and having re gard to the actual and potential hazards existing. Enforcement Policy--The essenballpoints in the statement of enforcement policy in clude the following: .the value of reasonable speed limits, some attention to that subject is warranted here. It is well known that speed limits which are posted in many locations are entirely too low. This applies both to the posting of the usual residence district and rural speed limits, and to the posting of special zoned speed limits. . Need for Reasonable Speed Limits until inde 1. Enforcement of speed regulations should be directed most critically against drivers who are involved in collisions while operating at excessive speed. situation Is partly tbe result of ob solete speed limits, bat it is due also to the belief of some officials' and of persons living in the arest that low 2. Enforcement should be directed against linu&ire necessary to hold down speeds. all persons who are driving at a speed too In localities speed limits have been fast for the conditions regardless of whether posted at bly low values because the speed is in excess of lawfully estab it was th of least resistance. Persons lished speed limits, or below them. -living all streets ask for the low 3. In accident cases involving excessive limits to their children," and ob- speed, officers should seek all evidences from tained su] r die lower limits from which they may determine the speed of the their aldermen < ' other officials in their part violator's vehicle prior to die accident of the city. In addition, police officers- fa 4. In cases of excessive speed when there is no accident officers should determine the speed driven by pacing or by some other vored the lower limits since it made less work for them to get evidence of a speed violation. When the limits are./; set suffi ciently low, the officers could make all speed acceptable method Then, they should ob tain all other available evidences that the arrests for speed in excess of the limits,, with no need to make arrests under the speed driven was unreasonable or unsafe or. basic speed rale daring times of unfavor potentially so. This will involve notations on able weather, visibility or traffic conditions. all pertinent conditions such as weather, visibility, highway surface, traffic and physi At present there seem to be three schools cal conditions, and information on speed or of thought as to what speed limit signs the range of speed customarily driven at the should mean to the motorist Some officials time of -day upon the section of street or appear- to think that thqr should serve 'highway. Speed limits should be noted but merely as grades to reasonable speeds trader wiD be useful as evidence only when the ` average favorable conditions. Others think speed driven was in excess of the limit that they should, represent the maximum ,1* speed generally permissible under normally 5. Tolerance should exist only as may be favorable conditions. ;Still others say they necessary to 'enable officers confidentiy.to should represent maximum speeds above swear that the person apprehended was which a driver never should go, irrespective actually driving at or in excess of'a certain' of conditions. -The first two generally favor speed. the prima fade type while the last recom 6. At any point such as an intersection, hill crest, curve or other location where actual or potential dangers exist because of lack of adequate visibility distance, any speeds in excess of the critical limit; should be deemed in violation of the basic rule and subject to inflexible enforcement Proof that a speed driven was unlawful may be estab lished by presenting engineering data show ing that at the place any rate in excess of the critical speed was potentially dangerous. mends absolute limits. * In some localities officials tell the motor ists that the speed limits are maximum values above which they! never should op- erate. Then they establish lower values for the limits; often below the prevailing speeds of traffic, apparently under the assumption that the motorists will use them as guides to reasonable speeds and recognize that they .can exceed .titan without danger of arrest.. This; is then followed by an enforcement Since each Sub-Committee has stressed ' policy which does not begin apprehension Street and Highway Traffic Section 31 , until the posted limits are exceeded, hy some. of street outside the-built-up district re^ [indefinite amount suited in a change in maximum speed from'' Thus under favorable conditions there are actually two official speed limits, the one shown on the sign and the one where en 72 to 45 miles an hoar, and a change in average speed from 37.8 to 34.1 miles per hour. There was no change in enforcement forcement begins.. Since die average motor ist has no means of knowing the spread Value of Speed Observations between the two under different conditions and in different localities, he must set his own values and in so doing may ran into conflict with the law. When police administrators adopt uni form policies and when police officers are trained to cany on a greater share of the speed enforcement under the basic rale; there should be less resistance to establish ing and posting; higher and more reasonable limits. Complaints of local persons can usually be overcome by getting these jectors to drive their own vehicles over the section in question at speeds which they consider as reasonable maxhnmns. They are Another point stressed in each of the three Sub-Committee reports was the value of speed observations in establishing reason able speed limits and in guiding the enforce ment and educational phases of the speed control program. It is the firm conviction of the Committee that drivers want to drive safely and that most of them stay within reasonable limits most of the time when they are on familiar streets and highways. Thus, observations of the speeds of vehicles at any one location should be a good due to the safe speed at that location underthe same conditions. usually surprised to learn that their speeds and the prevailing speeds of other vehicles are considerably higher than the speeds which they had recommended as desirable maximtuns. Some will be driving too fash it is true. Traffic engineers often consider that 10 or 15 per cent of drivers are going too fast, and use the top spee4?of the remaining 85 or 90 per cent as an indication of the maxi In more than half the states there is au mum speed for safety. thority for establishing special limits through rotting on through streets and on 'Streets in outlying parts of cities. If this Authority were exercised as it should be, much of the unreasonableness of speed'lim its would be'eliminated, hi the remaining places where there is no zoning authority, the easting speed limits should, be posted only'on sections of street or highway when the limits are suited to the conditions. If these two steps were to be followed, motor ists would, have much more confidence in posted speed limits. . . . Motorists also shotdd.be told of differ ences between prima fade and absolute speed' limits. They should:be told that if they do exceed prima fade, limits, they are subject to arrest and must be prepared to prove flat they were driving at a reasonable and prudent speed. It is rather discouraging sometimes to find that existing posted speed fonts are set a great deal below this 85 or 90 per cent speed value. In one instance recently, only 10 per cent of the cars were observed traveling within the posted limit. Of course, speed, observations are hot the only information to consider in determining the. proper numerical value of a limit for a speed zone The past accident record should always be considered, along with results of trial runs. Yet, a posted numerical limit should never be set low^that more than half.of the traffic exceeds it under normally favorable conditions. More detailed criteria in terms of speed observations are now being developed for nse in safeguarding the establishment of reasonable fonts. It is expected that these Recent speed studies in Kansas Gty, Missouri, have shown the value of posting proper speed limits. There, results of speed tolerances will be in. terms, of leeway al lowed- on either side of the 85 per cent or 90 per cent speed. observations .show that actual decreases in ' In addition to using speed observations in driving speeds resulted from posting in determining proper values ; of the posted creased and more reasonable speed limits. speed limits, it is-recommdktai that dfy and In one instancy.a change of speed limit state traffic engineering. authorities make from 25 to 45 miles pier hour on a section periodic speed observations throughout their i'v 1 32 29th National Safety Congress jurisdictions for use in education and en forcement as well as in engineering. The results will be useful in the following ways: 1. Information on ranges of speed at dif ferent locations should be referred to police administrators for use in instructing patrol officers. 2. The educational program should in clude information on the ranges of speed customarily driven on different streets and highways, and the need pointed out for mo torists to keep within the speed ranges. tices. Campaigns should not be based en tirely. upon speed control; likewise, speed control should not be neglected by concen trating traffic safety activity almost entirely on some other phase such as pedestrian con trol or control of drunken drivers. Urban Speed Control Recommendations which deal primarily with the urban speed control program in clude the following: 3. As speed practices change, results of 1. The first step in a speed control pro the observations will l>e useful in revising gram in a city should be a traffic engineer posted speed limits through zoning author ing study of the streets to ..determine which ing. ity, and in identifying locations where the section of street will need to be zoned with 3. * blanket speed limit is sufficiently reasonable special zoned speed limits and to determine prope to be posted there. the proper values of those limits. force violat Summary of Sub-Committees* Recommendations Studies for determining proper zioaed limits should include at the very minimum (a) representative field checks of motor- ve perio< sultin of vii 1. There is a general need for the estab lishment of higher and more reasonable speed limits on major streets and highways in cities through zoning or legislative au thority. Speed limits should not be posted except at locations where the numerical hicle speeds, (b) studies of accident distri bution, hnd (c) trial runs over the sections. The numerical values of the limits. should conform with die conclusions readied in the. engineering studies; otherwise limits should not be posted at alL accid< tions makii shoul< 4. S with limits fit the conditions. Similarly, speed 2. Speed limit signs should be erected at violat zones on rural highways most also be es regular intervals throughout the city so that speed tablished with reasonable numerical limits. motorists will be informed of the prevail shouh 2. Representative speed observations are a good measure of the reasonableness of a speed limit, although comparative accident experience must also be considered A posted ing limits. In some states, \ will be neces sary .for the aty council afijgially to adopt special limits for the sper'j,*or* so that they may have legal signif \Vh tion tl have medic numerical speed limit should never be set 3. A continuous and the '"^blic edu at wh so, low. that more than half of the traffic- cational program should ' 1 on to Oregc exceeds it under normally favorable condi acquaint citizens with the -- rol pro use c tions. gram and its fairness to t purity on "traps >*- 3. Traffic engineering authorities should mate- periodic speed checks throughout their jurisdiction and results should be used in results from speed obsc helpful in encouraging voto the posted limits.. will be ' .obedience sylvan such < The 1 quiren engineering, enforcement and educational 4. The educational. pro*' should be measfi phases of the speed control program. given support through w enforce in the : w . 4. As speed limits are established at higher and more reasonable values, police officers will need to give more attention tp. ment Much of this ei. business districts and at able weather or traffic c . ., ;t in the of unfavor "ions must be s' enforcement of the baric rule, especially 'based upon the basic spec - rather than when weather and visibility conditions are on posted speed limits. . sr. : unfavorable and traffic is heavier than usual.~ This should be included in police training Enforcement programs. 5. There is need for proper balance be Recommendations -of t! c Enforcement tween attention to speed control and atten Sub-Committee ipdude tin ' moving: 1`rcsid way sr- tion to other safe driving and walking prac .. 1. Every police department - nhould prepare' Street and Highway Traffic Section 33 'Hid follow a uniform policy for enforce ment of. speed regulations similar to that previously outlined, 2. In . traffic officer training, emphasis olioutd be placed upon officers acquiring the ability to discriminate in the determination of charges to be preferred against violators. Charges should be appropriate to the of fense committed. With regard to speed con trol, there is a special .need for distinguish ing between such offenses as following too closely, driving too fast forconditions, im proper overtaking and passing, being on the wrong side of the road, and reckless driv ing. . 3. To guide administrators in determining proper balance between excessive speed en forcement and enforcement directed at other violations, the administrators should make periodic law observance studies. The re sulting data on frequency of various types of violations should be used to supplement accident report data on contributing viola tions in determining whether patrols are making as many apprehensions as they 'should on each type of violation. 4. States now *&ving restrictive provisions with respect to seeming evidence, of speed violations should repeal them. When special speed checking methods are necessary, care ould Be taken to insure their accuracy. With respc/.Mo this latter recommenda tion the Sub-O mraittee found that 10 states have law. " place limitations upon methods ft.' *?ntng evidence of the speed at which ... ',.im(was driving. Two states,' Oregon W~':-.>vj<fmia, entirely prohibit the. use of -^-"'Vfcxjjobtained through speed "traps," states, Maryland, Penn sylvania * -?`..jr./ington, permit the use of, <ucli evidy -rlnid^r certain conditions 4, The Wash --> state law contains a re quirement .regarding accuracy* of the speed measuring <y/|w!font, but the final statement in the law* '1* length of the "trap'' must be at least one-quarter of a mile in length would seriously limit its application. (It may be better to avoid use of the term "trap," by using a. term such as j'speed check station" or speed. "timing."}'^r\ Education . The following are;, among the recom mendations of the Sub-Committee on Edu cation: . 1. Motorists'should be told of the need for operating "at reasonable speeds suited to the conditions. They should be fold what, offi cials are doing to aid them in adjusting speeds to conditions, and should be fur nished specific. educational information on bow to make this adjustment. ... 2. Officials must make sure that all posted speed limits are reasonable if they expect to keep faith with the motorists. When the blanket speed limits are not suited to par ticular sections, the limits`should not be posted there at alt unlessr'-tiie limits are changed to reasonable and^jrotfer ^values through'zoning. . / 3. When limits are reasonable*, motorists should be told that posted prima facie speed limits should usually be considered as maxi mum limits. They should not be exceeded, unless conditions arc unusually favorable and the motorist can show that he was driv ing at a reasonable and-ptgdefflt speed. 4. Educational. informationjshould be di rected at officials as well/ss-atrTnotorists: They should be impressed' with the need for providing reasonable limits with adequate enforcement. The Sub-Committee reports contain detailed recommendations and discussions supporting the recommendations. These Subcommittee reports will not be avail able in printed form. They will be included in condensed form in the final Committee report which should he in print by next May. t -(nil witibrto: t oli.*: bi WEDNESDAY MORNING SESSION October 9,1940 w Group Session for Engineers-- Presiding: P^n4kR Roger L. Morrison, Department of Highway Engineering and High way Transport.'University of Michigan, Ann Arbor, Mich., .and Chairman, Traffic En- ^Jnneerins'KV'oinUtcc, Street and Highway Traffic Section. National Safety Council. M i'l r 8U 34 29th National Safety Congress Selling Traffic Engineering to the Commuxuty By THOMAS E. WETZLER City Engineer, Peoria, HL The selling of traffic* engineering is much the same as the selling of toothpaste, electric sweepers or the latest model motor car. It must be sold from the purchaser's stand point The salesman must demonstrate what his product will do for the consumer, who, in die case of traffic engineering, is the traveling public Will the proposed improve ment add to the convenience of the property owner, the merchant or the man behind the wheel? Will it contribute to his pleasure or efficiency? If the proposition is presented from, this angle it can be sold with greater case. In the past traffic engineering has been administered much in the manner of a dose of medicine. We have prescribed safety measures, speed regulations, etc, with the explanation "this is good for what ails you --so take it and smile 1" They haven't al ways smiled. Instead of selling traffic regulations, it is the business of the engineer to sell increased traveling facilities, reduced time between place of business and home; greater profits to the merchant and convenience to the . shopper. In other words, "Don't sell the steak--sell the sizzle!" What will your program of traffic engineering do for the general public and the individual? While traffic engineering is designed to art down accidents and increase safety, an ap proach from this angle is much like treating the symptom instead of the disease. Acci dents are a symptom of traffic inefficiency. While traffic counts and accident surveys are! important from a fact-finding baas, it de volves upon engineering to utilize these facts with an eye to improved traffic design, rather than to impose upon the public regu lations which sedk to govern and restrict Something over two. years ago it was proposed that Hamilton boulevard in Peoria be improved. This is a main artery from the business district to the residential sec tion. In order to increase the capacity and efficiency as a modem thoroughfare it was necessary that the street be widened. This proposal met with united opposition, both from the property owners and various avie organizations. How to setij that idea to the public was the question. Here's how it was done. In the first place the pavement was worn out to a point where, repairs were imprac tical. Our first wedge , was "cost appeal." We told the property owners, "If we pave tins street in its present form, as you sug gest; you will have to foot the entire bilL On the other hand, if we modernize the street from a traffic safety single;, the funds mil come from state motor fuel tax." This financial arrangement was entirely agreeable; However, both theproperty own ers ami the general public balked at the idea of sacrificing anjrpart of the boulevard or parkways, the later of which contained many-beautiful trees. Now our original plan was to cat the 24foot boulevard in the center to eight feet, leaving the parkways and trees intact A public hearing was called, but instead of offering this plan, we presented an entirety different suggestion--one which we were sore would be. rejected. The meeting ended with the majority of the people against any improvement and all opposed to the plan suggested. The following day several of the objectors were asked to come to the engineer's office for a conference. They were received one at a time and after discussing the plan sub mitted at the previous meeting, the alternate scheme was suggested. This apparent "com promise" worked. Another Problem (Another major improvement which re quired a large measure of salesmanship as well as engineering; was Franldin street-- which borters the central business district For several years attempts had been made to widen this street, but in. the. face of or ganized opposition fay the property owners surd lack of publiointerest, the improvement was abandoned. - First we called a public hearing of the property owners and learned that their atti tude had not changed. It was suggested fay them that four lanes could he provided on a regc wed T1 proj Effi< wan Street and Highway Traffic Section 3$ 40-foot pavement if parking were eliminated, t medjfihearing a formidable list of names. In: j Taking the property owners at their word ^spite-ef newspaper publicity and descriptions we proposed to the traffic commission that ofTBhe project the public was uncertain as to parking be eliminated from Franklin street just what this improvement would accom The first day that "no parking'* went into effect ihe merchants on the street voiced thdr oisapproval In no uncertain terms. A. petition, signed by these mcrchants/was pre- plish. We saw that it would be necessary to do some hard selling in order to pot the plan over. Consequently we built a. model of the project,. hoping thereby to clarify our seat^L .It demanded that the traffic commis- objective. It was displayed at various dvic son call a special meeting to lift the "no dubs and organizations and the plan was parking". restrictions immediately. We re explained in detail. Pictures anddescripfused] to take any action before the next tions appeared in the local newspapers, with regular meeting of the, traffic commission a the result that opposition to the improvement, wedc hence; wishing to generate all the heat' '..has almost entirety disappeared. ] posable before making onr next move. ^ d-roni; our experience with sellingjthis idea At this second meeting; which was held jointly with the board of local improvements, the indignant merchants and the property owners were in attendance. When the ten ant merchants learned that the no parking I would' coodude that in all complicated engineering (improvements, a miniature of the plan makes selling much easierjand is a sound method of overcoming-public resis tance and misunderstanding., \ j suggestion had come from their landlords, One of the most immediate problems heated arguments between the two groups which confronts the traffic engineer of to followed. At what we considered the proper day, one that calls ;npon his resourcefulness moment, the suggestion was made that a both as an engineer and a salesman, is the committee of five property owners be ap congested central business district p larger pointed to meet with the city engineer in cities. Because this problem has ] in large order to formulate a plan agreeable to alL measure remained unsolved, we see outlying Tins improvement demonstrated the fact districts cropping up in residential] sections, that often the salesman of traffic Ideas most have recourse to various methods, all of which hinge on the proposition .of selling )tds idea from the customer standpoint with a resultant loss of business to the downtown merchant mid the depreciation of property values, thereby creating "blighted" areas. _ Parking meters in Peorra b^re ^mirtially Elliott Street Extension solved tiie parking problem, but in"Submit ting remedies for downtown, trape^dooges- The latest and quite the most ambitions tion we have attempted to show the busi project webave yet tackled is the proposed nessmen that it is to their interests to help Elliott street extension in Peoria. Tins will the city promote parking lots in the blighted provide a link in the route for cross-river . areas near the business section and offer free traffic to and from the blnff sectionand leads parking to the public. directly from the second major bridgehead. It will dead-end a second major street at the base of the blnff. Dead-ending this major street met oppo sition from certain groups interested in onr major street pl&h. However, we explained that when increased traffic makes it neces sary, we can cany this street over the El liott extension. At present traffic does not warrant the expenditure. A recent proposal was made to eliminate parking entirely on Washington] street in the wholesale district, reserving :the space for loading and unloading proposes 'only, providing that all vehicles be parkedparal lel to the curb. This was passed by the traffic commission and presented to the city council, but tine to.lack of interest 'bn the part of the merchants and the public; there was no action taken. The proposal was When we first proposed this plan much pigeonholed. We are still working on tills confusion and opposition were raised, many problem, trying to stir tip sufficient public residents of the blnff section.holding the interest to exert pressure upon the city idea that it would necessitate a tanned with council to take the necessary action. As it large portals in front of their costly homes.' stands now it is "no sale." likewise the . A petition opposing-the improvement was promotion of free parking lots to be spon I} 36 29th National Safety Congress sored by downtown merchants in coopera neering of any kind is the support of the tion with the city is still on the shelf. municipal governing body. Much of the While the salesman of traffic engineering cannot hope to score a hit every time; while often his plans for public safety and traffic efficiency are met with indifference or down-, impetus given to our proposals for traffic improvement has been provided by the. Mayot^the Commissioner of Public Works and -wherever public interest has backed right opposition, he can find individuals and such proposals the City Council has' passed organizations willing to back any sound the necessary legislation. Tins cooperation improvement In our case we have had is of primary importance in any community. 100 per cent cooperation from the Illinois In conclusion, the traffic engineer most State highway department We have had not only have available exact information .exceptionally fine support from the news in the way of traffic counts and accident papers, both with news items explaining the .-surveys, he must be able to visualize the projects and editorials backing them. The ; workings of his plan beforehand, understand Chamber of Commerce has been a valuable the public reaction to same and then--square help through its safety council in malting his shoulders, put on his best Dale Carnegie suggestions for traffic safety' and in back manner and go forth and sell his bill of ing plans in this direction. goods to `.the ultimate consumer--Mr. and Another factor in promoting civic engi Mrs. John Q. Public. Cooperation of Traffic Engineers with Transit and Enforcement Officials By HAWLEY S. SIMPSON Research Engineer, American Transit Association, New York City The ends to be sought by an intelligent traffic engineer, transit or enforcement of ficial, are very much alike. Each is a public servant The first and last are employed by the public. The second is engaged in an en terprise endowed with a public interest and, while its revenues come from private sources, it is required by law and regulation to oper ate in the public interest Thus the three individuals should have as their prime ob jective the best service to the public they can possibly give. That objective is to better the transporta tion and communication facilities which we now possess or which we can construct This can be done individually or it can be done cooperatively. But what can be1 done cooperatively better than individually? If we can answer that question, we have an swered the question: "Why cooperate?" The need for an intelligent and coopera tive attack on our traffic problem arises from the fact that transportation is a very complex function. On this is superimposed the pedestrian with his own special and highly, individualized characteristics. To keep all these units moving safely so that each has appropriate freedom and encroaches least on the rights and privileges of others is not very simple. Traffic has often been compared with the flow of water in a pipe. No analogy that has been repeated by so many people was ever more absurd! Water is made up of mul titudes of identical moledues, each of which acts exactly like every other one All that a sanitary engineer has to do is design a water system, provide a source of supply, and sit back confidently and predict what is happening everywhere along the line with reasonable-assurance of accuracy if he has made no mistakes. Traffic is the exact, re verse It is made up of millions of units, no two of which will react precisely the same under identical, external influences. It is a dear recognition of the hetero geneous nature of traffic that will bring us to a real understanding of the traffic prob lem. The engineer whp has laid out a traffic system cannot predict what will happen with any assurance that his predictions will be sustained. The more experience he has, the more nearly his-assumptions will be borne out (_ Because of the way in which the traffic stream is constituted the knowledge of many eng imd Street and Highway Traffic Section 37 I people whose contacts with the problem, and This is not to say that the enforcement / thus their approach to its solution, may offidals have not been alert. What it prob differ widely is essential to any intelligent ably means is they have been doing the best attempt at achieving better traffic condi they could, but except for such investiga tions. tions as I have mentioned, their attention Let us look at the relation between the traffic engineer and the enforcement official. To effectuate traffic plans devised by the engineer; they must be understood by the enforcing official who is going to have a would not be directed to these places where conditions are such that increased enforce ment, even though coupled with decreased enforcement in other sections, will result in a greater return to the public. large part to do with their success. To un Three locations seem to be most suitable derstand why a particular plan was adopted, for dty traffic engineering departments. One the facts and considerations leading up to in the public safety or police department; its adoption must be clearly understood by one in the dty engineering department and everyone who, is to have a part in its oper one in a separate traffic engineering bureau. ation. There is inucii to be said for the establish I think that, in the early days of traffic engineering, there may have been a lack of . understanding between him and the enforce ment official as to their respective provinces ment of alv&affic engineering department both in public safety and dty engineer's offices. I think the preferred location depends largely upon local conditions and donbt that gen . and relationship. That is to be expected in eral recommendation of preference can be any new . functionalization of traffic han- made. Traffic engineering departments have dling. That this transmission has been suc been successful in both locations. cessfully accomplished and an appropriate Ultimately, however, I foresee that the arrangement of responsibilities established in work of traffic engineering departments will so many cities is a clear indication of the effectiveness of cooperation brought about, by a fuller, understanding of the several parts of the traffic problem by those en gaged in its handling. develop to such a point that it will become highly desirable to establish a formal disassoriated traffic engineering bureau. I say this not because it is impossible to maintain a traffic engineering bureau in an existing j Investigate Accident Causes department but because the work is so highly specialized that it can best be directed by an ' i- Both traffic engineering and police officials can most effectually cooperate in the inves tigation of street, vehicle and human condi tions which contribute to the causation of accidents. By that I do not mean the in vestigation of individual accidents for es tablishing responsibility or as preliminary to criminal litigation. That, dearly, is within official concentrating solely upon these duties. In most dty governments, the- establishment of such a new department is not feasible without special, enabling legislation. I could not, however, adequatdy cover the coopera tion of traffic engineers with others without mentioning-what;-to my mind, is an ex tremely desirable objective "the province of the police offirial. It is with the investigation of mass groups The Transit Official of acddents that the traffic engineer oan be The vehicles the transit official operates of most assistance to enforcement officials. differ materially from others in the traffic Here again I do not mean merely the prepa stream. Street cars, for example, are fixed ration of the conventional monthly accident in direction. While at free- running speed report, important as that.s/Rather, I refer they approximate the speed of automobiles, to the necessity' of breaking down these they are required to make frequent stops figures- into; their component parts and the and.so their over-all speed is less than that investigation of specific locations, groups of. a free moving passenger, automobile. of vehides or groups of individuals which Buses have similar characteristics except seem to be appearing too frequently in the for the important distinction that they are accident record. Such investigations are not fixed in direction and are free to maneu of a statistical and technical nature and their. ver on the streets. However, this freedom significance can best be determined by is limited by the necessity of stopping at the trained engineers. curb to pick up and discharge passengers and -.' ' ' " '' C; '..............." "o ' 38 29th National Safety Congress so they, too, operate differently from other, will best accommodate the total traffic and vehicles. causethe leastdelay. It seems to me that the primary objective of the three officials about whom we are talking should be to eliminate, so far as pos sible, the traffic conflicts that may arise from the way in which' the characteristics of these vehicles differ.- If these conflicts can be alleviated every user of the streets will tend. to benefit I think it may fairly be said that nothing which will act to improve mass transportation service can in any way inter fere with the freedom of the use of the street-by others and will, in most cases* re sult In improvements for every one.. Elimination of Conflicts ` -t If we proceed qn the assumption that such elimination of conflicts is desirably we pre suppose the cooperation of transit arid po lice officials wilh the traffic engineer. Through his experience, the operating head of the transit company and his associates are most clearly aware, of the situations which give rise to these conflicts. The second cause of conflict is iu thi/act that both street cars and buses must stop and stand, in the street .to receive and dis charge passengers^ To accomplish this function as rapidly as possibhv and sowith the least delay , to other >toaffkv adequate atten tion should-be paid to the ; installation of loading zones for; street cars ..where traffic conditions warrant! and the proper location and length,of bus stops.. Modi of the critidsin levelled at the. street car and bits by private operators conusabout because of in adequate provision for loading and .'unlpading at intersectioos. These objections can be practically eliminated by a careful;stndy of the requirements ofmasstransportation ve hicles. Then, after their adoption, by the rigorous enforcement of no-parking rejgula- tions to provide maximum steed space. . Studies conducted bythe American Tran sit Association lave developed considerable information about the . best design of load These conflicts occur primarily at one ing zones and the. space requited for bus point, the intersection. . . stops. These show that,whh notable excep Anything that tends to better conditions at this point will improve traffic flowthronghout the area generally. I think it can be said there are jtqst two things which, if in telligently applied bene, will dear., up most of the conflicts between units with different operating characteristics. The first is the tions, safety zone destgn and distances ,sdkcated at the cdili-for bu stejp^, are well below the standards essential for maximum traffic and transit efficiency. Tbejexceptions occur in those places where traffic; transit and enforcement officials have, cooperated in the alienations of these conflicts. traffic signal system.' It should unquestion In dosing, I should: tike to make, ooe ably be designed for progressive operation. recommendation to transit companies. If But.the mere fact that the signals operate this recommendation were generally adopted, progressively is not enough; they must be it -would, I believe, promote much more, ef timed intelligently. Studies leading to the - fective cooperation of the three groups. I- timing of progressive signals should consider I think it highly, important that the transit the relative volume and speeds of each of company set up a traffic engineering depart the several classes of traffic and a timing ment within its own organization, headed by should be worked out which will function a competent traffic engineer, to work in'dose most successfully .for all vehides. To move conpdatioh witbthe aty traffic ogineer and street cars and buses, as welt as passen aty police officials and handle company traf ger automobiles, successfully through a pro fic,engineering problems. This is being done gressive signal system, it is extremely im by many city transportation properties and portant that speed and loading and unload it ia gratifying that the trend is strongly ing time studies be made, on the transit in this direction. It should be encouraged by vehides to determine the probable operating traffic engineers and enforcement offidajs in conditions which must be met during each dties where no single individual hai\tpBflte period of the 4ay. With this information, a engineering responsibilities of .the transit mass transportation time space diagram can company. Any dty large enoujh.to main area' be worked out, as well as one for automo tain a traffic., -engineering department has . biles alone. Then, often, by slight adjust reached a point Where the tranrit company ments in the two timing programs, a new . can well justlfy the employment of a fulltime space diagram din be developed which time,traffic engineer. "r  %*'* I Street and Highway Traffic Section Using! Speed ^ttw^atio^inZoriing 39 Electrical Engineer, MinnesotaHighway Department, St. Paul, Minn. Designers of traffic facilities considerpres in jail municipalities in the state. Often these ent requirements andtryto (estimate the fu-. signswere erected .. at the city or village tore demand; flat will te pticed on these limit withootregard to whether. the high facilities. The traffic -problems are ap way was an open or built-up area. In 1937, proached with the rattitndd thattbe public under a new law which permitted the Com most be served, mri thesolution whidi - missioner of Highways. to eriabtish speed vors themajority is generally adopted! zones withprimafade limits of 30^ 45, or Letju consider the problem of establish 60. nLpii. (50 m.pJbu at night in 60 m.pJu ing proper spcedxones for streets, and high zones), an experimental speed zone was es ways. .Factorstbat most be considered are: tablished on U.-S. 169 from Elk River to 1. The ansi throog^ whidi the' street or highway passes. Rural, semi-nrbaji,arban orcongested urban. .. 2. Provisions for. pedestrians. . Grand- Hs^ds; approximately 150 miles. .This highway was chosen because it had sections of roncrete; Intmnhiou^ and gravel surfacing; straight and wjndihg alignment, sections-of restricted right distance; and 3. Fariting; heavy'tourist traffic during' the summer ' 4. Roadside exploitation and encroach montiis.- ments. . 5. Traffic, vbhune. Peak Row; average ... Public Approved Zoning flow. 6. Type. of. traffic. Percentage, of. com mercial vehicles. No speed observations , were made prior to. this experimental zoning; but test runs were made by engineers and highway patrol 7. Number of - intersections.;and conflict captains before therigns were erected. After areas. Sight distance at these locations. tire zoning had been completed,-hundreds of & Al^mnait and road surfact^Widthof questionnaires indicated almost 100 per cent ight-of-way. approval of the .principle of zoning and of 9. Accident experience. 10. Prevailing speeds before zoning. 7 . Without going into thediscussionoftbese different factors in their relationship to one another, let ns just consider "Prevailing speeds before zoning."' the zones as established. Public interest was very keen because tins was the first high way in the state on which speeds higher thanthe long established prima fade limit of 45 in-pii. in rural areas, and the more recent absolutelimit of 30 m.ph. within munici palities wiere legallypermitted. At the begin-' -Taking the viewpoint that the majority of rung of each different speed zone; "Begin 30 motorists drive conscientiously, we may as Zooe," "Begin 45 Zone," or "Begin 60 sume that these motorists will dioose a Zone" signs were erected. The confirmatory speed which they feel is reasonable and speed signs carried tire message "Speed 30 proper. If this, fact is properly taken into Zone," "Speed 45 Zone," or "Zone 60 Nite consideration, enforcement will be less bur 50" '. , ^ densome and drivers are encouraged tp.com ply. with posted speed limits, with , a re sultant increase in respect for all traffic regulations. . In ,1938 we zoned 1700 miles of the most heavily traveled highways. The same method of zoning was followed and, hi addition, a mercury tube device was used to check Our. problem now is to Obtain this infor speeds oa curves. This tube was calibrated mation, analyse the data and correlate it td ring a buzzer or flash a light when the with all the otherfactors. Before discussing curve1 was negotiated at too high a speed.. this procedure, it mightbe wetti to provide, Speed worn were thus established for curves a brief backgrtmhd of speed zoning hi Min instead, of..posting maximum safe speed nesota.. . rignifor the curves. Because of the legal In 1935, "Speed 30 'Miles?' signs were limitation permitting the use of only 3ft 45, erected by the State Highway Department or 60 m.p.h. zones, many of the'curves were YH 40 29th National Safety Congress zoned for speeds from five to 10 m.p.h. The Electric Speedmeter slower than was neededi. Deceleration zones of 45 m.p.h. were established between 60 m.p.h. zones and 30 m.p.h. zones. These zones were 02 mile long, tests having shown that it takes that distance for . the average car to decelerate from 60 to 30 on a level highway without application of the brakes and without coasting. This deceleration zone was decreased proportionately on up grades and similarly increased on down grades. As an added safety factor the "Begin 30 Zone" sign was erected 0.1 mile in advance of the exact location where the speed should first apply. The operation of the speedmeter is fairly simple. Two flexible rubber-covered elec trical switches are placed on the highway 15 feet apart On highways wider than two lanes, small air tubes, connected to dia phragm-type air switches which make the electrical contact are used instead of the electrical switches. The switches or tubes appear as pavement joints on concrete roads and blend in with the surface of bituminous roads. These switches are connected to the speedmeter through long lead-in wires. The speedmeter is generally kept in a private car with regular license plates and with no dis In 1939, the legislature amended the high tinguishing identification. The car is usually way traffic regulation act to raise the prima parked dose to the location where the speed facie speed limit outside of municipalities to survey is being made, but is parked far 60 daytime, and 50 nighttime. The power enough from the traveled portion of the of the Commissioner to determine and estab highway and in such a manner so as not to lish speed zones was made much broader by present a traffic hazard or in any way to authorizing him to establish speed zones influence the speed of the traffic: Motorists either above or below the statutory limits, on generally pay little attention to it any street or highway on or off . the state The front wheels of the vehicle strike the trunk highway, system, on the basis of an first road switch or air tube. This starts engineering and traffic investigation. This the building up of a charge on the conden power can be exercised on streets or high ser. At the samejtime, a relay disconnects ways not a part of the state trunk highway road switch so that the rear wheels will no: system only at the request of the local au affect the meter. When' the front wheels thorities. and who in no case possess such strike the second road switch the electrical power. The speed limits as established and charge is stopped. The amount of the charge posted were made absolute. on the condenser is determined by a vacuum These changes in the speed law also changed the method of speed zoning some what. Prior to 1939, it was usually advisable to raise the speed limits on rural highways from 45 to 60. After passage ofrthe 4939 law with. the higher prima fade limit, it became necessarv to zone only those..areas where a speed limit bdow 60 was required. With the change from prima fade to abso lute limit speed zones, much more care had to be exerdsed in their establishment. In order to provide more uniformity in zoning, it was dedded that whenever possible zones of 30, 40, and 50 would be established, with. 60 m.p.h. zones to be used only where it would be desirable to have an absolute in tube voltmeter, and this is read directly in miles per hour on the calibrated milliammeter. The speedmeter is checked bv a pendulum which gives the same time im pulses as are provided by a vehicle traveling the 15 feet between road switches. Controls are provided for adjusting the meter to read correctly. At least 100, and preferably 150 or more, vehicles for each direction of traf fic should be observed and the speeds re corded separately for each direction. Truck speeds should be kept separate from car speeds.. Where traffic is extremely light, we have not considered it worth while to spend over three hours for one survey trying to record a reasonable number of vehicles. stead of the prima fade limit Picking the Sample. In July, 1938. the Department nwde ar rangements with Dr. Herbert J. Reich of the Electrical Engineering Department at the University of Illinois, for the construc tion of an electrical speedmeter similar to the one in use at that time by the Illinois Highway Department . The speed surveys should be made during hours of the day when traffic is fairly nor mal. Tt is not reasonable to check just the peak flow, which might be causing conges tion. If time permits, it is desirable to make more than one speed survey at the same lo cation, or else make surveys at similar near- Prej Street and Highway Traffic Section 41 \ )y locations and combine the results to get a larger sample. Needless to say, speed sur veys made under adverse weather conditions or when the road surface is wet, slippery or covered with snow or ice, will not give a true picture of the situation under normal conditions. Before getting set to make a speed survey, the operator should ascertain that there is nothing unusual within a reasonable distance that might affect the speed of- traffic; such as. construction or maintenance work, im properly parked vehicles, near-by police cars, or obstructions on the highway. Locations where the speed survey is to be made should be as representative as possible. - If speeds at intersections are to be chedced it is helpful not only to get the actual speeds through the iiftersection, but also at places in advance scr as to get approach speeds. Similarly, speed surveys made at the begin ning of the curve might be supplemented by surveys made in advance of the curve, and also at places on the curve where there might be an accident "hot spot" Using the Data Once the data is gathered, the question of how to use it arises. Should an average -speed be determined? Should the upper jimit of the pace (the 10 mile interval of speed containing the largest number of cars) be considered as a top limit to be established, or should a certain percentage, such as 85 per cent, of the traffic be assumed to be driving reasonably and the other 15 per cent assumed to be driving too fast? While the average speed is useful in some types of speed surveys, we have not used it in our zoning procedure because a few extremely fast cars or slow cars might unreasonably affect the average figure obtained. Tnb upper y Iimit of the pace and the speed at or 'below_X which 85 per cent of the passenger cai^vpie^/ being driven, are given a great deal of con- '/> sideration. Generally, there will be but "little difference between these speeds, and tliir * speed zone selected from analysis of the -, speed survey data may be slightly, ahoye or below them;, The other factors to be -con sidered in arriving at the proper speed zone to be selected will determine this, however. No matter what speed zones are estab lished there will always be complaints that the speed zones are too high or else traffic doqs not obey them at all. Reliable speed surveys give the traffic engineer some fac tual data to check these complaints and, as so often happens, to refute all or at least most of the allegations made. In making speed observations prior to zoning,, we very seldom inform police offi cers or local officials that the speed survey is to be made, but in checking speeds in zoned areas we often invite them to witness the speed survey. This builds good will and helps to establish confidence in the data ob tained. WEDNESDAY MORNING SESSION October 9,1940 Joint Session with City and State Police and Traffic Court Judges and Prosecutors Presiding: Ray Ashworth, Chief of Police, San Antonio, Texas. What Is Wrong with Traffic Law Enforcement? By W.K. INGRAM Chief of Police, South Bend, Indiana You would expect a police officer to take the attitude that life would be much simpler and easier ' if policemen did not have to bother with such nuisances as prosecutors and courts. But I am not at all certain that life would be better under that kind of set-up. Law enforcement by the police alone isn't a new idea. That is the way things are in 42 29th National Safety Congress Italy, Germany, and Russia. In this coun Most traffic- cases today involve almost try we like the checks and balances that' the same procedure as our most serious of come under a system of divided responsi fenses, such as murder, rape,' and arson. You bility. But there are drawbacks. Probably know that in many courts traffic cases are,, the most striking example of the bad side in fact, handled on the same docket of this divided responsibility in law enforce* Why not set up a streamlined traffic court ment occurs in the application of trafficH, that h quite as`modera 35 the automobUe law. I recognize that there are many things wrong with both the policing, and the prose cution of traffic law. But, the.main fault, in itself? If a separate court is not practical in some of the smaller cities, at least the court could allot a special time for handling traffic cases. my opinion, is that the courts just haven't caught up with the automobile It seems to Indiana System . me that there is a tremendous lag between - the reality of the modern motor car and the Perhaps the magistrate court is the an court's technique in coping with the new swer. In Indiana these courts were author situation. ized by the legislature to "meet the many I have known a judge to sentence a man from three to 10 years* imprisonment for stealing an old car. Then I have observed this same judge five minutes later fine a man $10 for driving while drank and then sus pend the sentence. new problems which arise from modem highway traffic and from other complexities of modern fife," in the words of Professor Janies J. Robinson, of Indiana University, a leader in modernization of law enforce ment' These courts are designed to remedy the No "Oomph"? t* ^ Part of the explanation is that the average evils of the justice of the peace system and to relieve the crowded dockets of the city, K 'i judge is just plain bored when a traffic case circuit, or superior ^courts. The magistrate comes before him. Traffic cases don't have system almost automatically;brings'traffic die "oomph'* of a nice assault and battery'. law jurisprudence up' to date, regardless of These judges do not realize that the case the variation in the views of individual docketed under the dull code of reckless judges. driving, driving under the influence, speed My first indictment against the courts, ing, or failing, to yidd right-of-way, are then, is : The judges do not take traffic cases cases involving needless expense and pain. seriously. Number two is: The system How can a judge turn from a perfectly itself is not designed to handle traffic cases. fascinating case of wife-beating to an inno Number three: Endless technicalities play cent-looking charge of . driving under thev-on the side' of the guilty defendant and oper influence, and keep his proper perspective? ate against the innocent defendant Wife-beating is the sort of thing that every You will agree, I am sure, that half, the red-blooded American resents. Driving un penalty, inflicted twice as quickly, is far der'the influence is too often looked upon more effective than twice the penalty admin merely as something rather naughty. istered only half as quickly. If we could In other words, too many of our judges remove delay from court procedure, we wifi, do not know the meaning behind traffic laws. win more than half the battle toward real Their thinking is still back in the horse- traffic law enforcement and-buggy days, when a man could get joy The eternal procrastination of our courts, ously'delink and rdy on the horse to take is the bane of the police officer's life and him safdy home. a thoroughgoing nuisance to every citizen But, even when the judge realizes that who is so unfortunate as to have to appear. traffic law enforcement is a serious business,, in a traffic case. he is often so handicapped by the legal for malities of his court that there is not much he can do about it Then the system, rather than the judge himself, is at fault Legal istic procedure in traffic cases is top-heavy --a moss-covered antique. Witnesses many times, are required to spend all day in court only to be told they must return die next day. Naturally they make a mental reservation never again to be an eye-witness to a traffic violation, a drank driver, or a traffic fatality. Street and Highway Traffic Section 43 j There is something else which is quite as the old -style judge who used to order wife- destructive as needless delay. That is the beaters 'to kiss their wives every morning, scornful attitude of some courts toward or go to church for a year. police officers. This attitude destroys police This is not traffic law enforcement Silly morale. sentences do not deter anybody from vio The court, on the other hand, can exercise lating traffic rules. a powerful influence in building tip morale. I don't mean, that a court should favor the police. -'Not at all! Sometimes, *by reason of legal restrictions, the court must acquit a defendant whom the court knows is guilty. Another senseless practice that has been held over from olden times is maintaining separate fines and costs. If a man has to pay $1 fine and $10 costs, he has been sen tenced to pay out $11. He lias merely aca Under these circumstances the judge could demic interest as to what part was fine and he of' immeasurable benefit to the police de what part was court costs. Publication of partment if he would frankly explain to the the fine "$1 and costs" looks bad in the officer--privately, if possible^wliere the of local newspaper and carries but slight de ficer failed to make an air-tighrcase. Thai, terrent value. It is even worse if it reads even though the prosecution lost, the morale "$1 and costs; costs suspended." of-ithe officer remains intact Too many courts take a lofty attitude. Suspended Sentence Evil Some judges humiliate witnesses, abuse of ficers, and look down their noses at prose cutors. The judge fumes with satire and scornfully ridicules his victims. The police have very properly been given the devil for fixing tickets. Many rides have passed so .called anti-fix ordinances. But thee ordinances do not, as a ruMto^ch the Of course, it is not so tough for the prose courts. 'J cutor, as a rule. The judge, being a lawyer --but not always a good one--has some ap preciation of the prosecutor's job. 1 am sorry to say that there is no requirement that judges have any knowledge of traffic \problems. It seems to me that just about jffie' most pernicious form of fixing .is'.the suspended sentence ordinarily practiced by our courts. It is pernicious because it is essentially hypocritical. The court^says, in effect--"You are guilty. Let me quote Harry H. Porter, Chief But I am a pretty good fellow. Til let you Justice of the Municipal Court, of Evans off this time." And then the court judiciously ton: and pompously descends the bench serene in "To the traffic judges of this nation let the belief..that he has added one more vote me say: This institution and this authority when.-election time~fqmes around. committed to your care is sacred to the peo ple of this nation. Conduct it with the best of judgment, .skill and' morality at your command. Justice, complete and unbiased, most not be delayed, sold nor denied to any person, upon penalty of your own con science." - Either a city is going to permit tickets to .be fixed, or it -isirt going to permit tickets to be fixed. It makes no difference, from the standpoint of law- enforcement, whether the fixer is a cop, a prosecutor, or a judge, and it doesn't matter what par ticular technique is used. - You know, some courts brag about their ignorance of traffic matters, just as longs used to . brag thdt they could not read or write. These courts^ basking in the light of their own' esteem, grandly decline to par ticipate in community safety organizations, or to cooperate in a study of traffic acci dent problems. I think the refusal of a court to convict for traffic violations arising from accidents --taking the attitude that the court does not wish to leave the defendant open to damages from a future civil suit--is at least a first cousin of the ticket fix. It is cer tainly a .rank miscarriage of justice. What kind of reasoning is it that permits Sqme of these courts are Cfuriny. The a court to decide that a man shall go free judge makes such. absurd sentences as re when his actions have resulted in an acci quiring the violator to visit a morgue, to dent that endangered lives and limbs, at the write an essay, or to take a generous .dose same time punishing another law violator of castor oil. This is about as effective as (vi^se actions haven't hurt anybody. : A 44 29th National Safety Congress When you get right down to it, what right has a police officer to give a violator a ticket, to .arrest a violator on the street, write out a notice to appear, and release the violator on his own recognizance? These are court (unctions. Legally, no arrest has been made by the mere issuance of a ticket, legally, the man can be released on his own recognizance only by the court Moreover, no police officer has a right to issue a sub poena, another function of the court. Yet, this is done necessarily by the police to avoid stuffy court rules.' My only reason for calling attention to the police sins in this respect, is to point out this moral: At least police operations are flexible. All the admitted faults of the police department can be cured by proper organization, administration, and welltrained personnel. I wonder whether the courts may be brought up to date so readily. What Is Wrong with Traffic Law Enforcement' By JUDGE PERRY A. FREY Municipal Court of Cleveland. Ohio Before making the bold statement that the officers he is looking for an opportunity to police can and should do a better job, let me discharge some offender whose friend might say a word about their bosses: the mayors, have reached his ear. It likewise often hap- councilmen who control the purse strings, l>ens that the arresting officer will bitterly* police chiefs and traffic commissioners. It is complain about the court when the defend the duty* of these gentlemen to know that ant is dismissed, in order to cover up their traffic safety is now demanded by every' own deficiencies in preparing their case. community. It is their duty to make a care ful study of the problems and then--and The Traffic Officer this is of paramount importance--to furnish the police departments with sufficient funds to bring their man-power up to par and supply them with the proper tools for ade quate enforcement. After this is done, the courts and the police must assume the bal ance of the burden. What can we expect of the traffic officer? Is he doing the best job he is capable of? Is he an agent for the prevention of acci dents on the highway, and is he at all times exercising his authority for our protection ? It is indeed regrettable, but. nevertheless true, that we are oftentimes disappointed in Courts vs. Police our expectations. We find for instance, in some traffic officers the characteristics and There is no doubt in my mind that who qualifications more suited to an uncouth ever championed the cause of either the low-brow. We also sometimes find that he courts or police could hurl some, very' sting is. ..a boogey-man parading the. highways ing darts. If this procedure were followed. scaring, ridiculing and browbeating the Mr. and Mrs. Motoring Public, acting as-the~\motoring public. referee, would be inclined to thinkjef^ } What right has any traffic officer to greet rcmouirrftcs aannd/i prvoIlic/ve tthhaann they nnno\*w rdino. i-.T..Tno make their work effective, it is. necessary that both command the respect and coop eration of the public. / . * -* ... . a motorist, regardless of the violation, by such remarks as, "Where's the fire?" "Where do you think you are--on a farm?" "Who do yon think yon are--Barney Old The first step in this direction should be field?" "What's the matter, are you blind?" $ a complete understanding and the proper and similar remarks, perhaps not so mild. f. respect by both for the corresponding prob . I say, he has no right, but he does have an lems, duties and functions of the other. One absolute duty which is printed in almost should not attempt to run or dictate the every police rule-book in the country, to con affairs of the other. Satisfactory results, duct himself as a gentleman at all times. however, are largely dependent on the co The traffic officer who attempts to browbeat operation each receives from the other. and scare the motorist and who uses such Often when a judge reprimands the traffic language, does more to break down the re- Street and Hightvay Traffic Section 45 spect of the motoring public toward traffic Jaw enforcement,-than any other fact I know of. When such conduct on the part of the police is brought to the attention of the court, it tends-to weaken and destroy the court's confidence in the testimony of. such an officer. Courts then look upon his every arrest with suspicion. Furthermore, such an officer brings the public's ill anil and con tempt on his fellow officers, who are in no nay deserving of it I realize and fully ap preciate from my experience as Chief Police Prosecutor and Judge, that many times an officer is subjected to very unfair treatment by the public--this, however, does not ex cuse him. There should be no room on any police force for hoodlums, tough guys or smart alecks. Besides possessing the qualifications of a gentleman, Mr. Traffic Officer should thor oughly know his job. He should first have an adequate knowledge and understanding of both city and state traffic laws. He should be able to analyze quickly the facts in any 'traffic situation and present them intelli gently to the booking officer and police prosecutor. He should be properly schooled in obtaining evidence at the scene. He should be able to gather from the witnesses, proper and sufficient statements and he ^should also know how to prepare an intellijient report. He should be observing, so that at least the important details, as to distances, lighting and weather conditions and other factors do not escape his attention. Any arresting officer should not permit his own personal feelings to influence him in bringing the proper charge. I have known officers who. for one reason or the other were over-zealous iii attempting to give the offender a break, and I likewise have known officers who are very solicitous in robbing it in. Many cases are lost and many a dangerous traffic violator escapes punishment when he is not charged with the proper offense. It is elementary, of course, that in any criminal case,.the defendant must be proven guilty beyond a reasonable doubt Our enforcement receives a disastrous blow from police chiefs and other superiors who are more interested in the number of arrests and convictions than they are in the actual prevention of accidents. The patience of a court is severely taxed by such en forcement Traffic men are sometimes repri- \nanded for not making more arrests and .1 have also heard that traffic officers were in structed to bring in not less than a certain number of violators. This concept of traffic law enforcement is very dangerous and has disastrous, resulu. It tends to stultify honest officers. Certainly the motoring public is en titled to better treatment from the hands of their paid servants. The police chief who thinks that enforcement consists solely in apprehending violators and inflicting' a fine upon them does not belong in this modern era of traffic law enforcement Our traffic departments will serve a much better pur pose if they will turn their attention to selec tive enforcement with prevention as its pur pose. Traffic men should be stationed at the places where the most serious violations and accidents occur and at the time of day or night when a survey shows they do occur. Police should turn their attention to major violations which cause the seri ous accident; the use of the spot map andaeddent records.filed by locations is essen tial for selective enforcement It should be the aim of. every well-rounded traffic law enfopaepiea^^bgtam to Jinstill in the public /k gMuit^.vy^./'!for/tiaffic safety. The pobre'are position'to as* sume the leadership in-this phase of the program and can do much constructive work. I suggest a bureau of public relations to educate the public in the matters of traf fic safety and to promote the goodwill of the citizens. This may be done by- talks on safety given by the police at public gatherings and to various groups; by short announcements where large numbers of people .are gathered and by the use of the radio. Safety contests also should be pro moted and attractive signs and slogans dis played throughout the community. Small pamphlets and other literature is available for tile police in many localities for distribu tion to the public Courtesy and warning cards have also been successfully used in traffic educational programs. The police are in a better position to create and foster the good will of the motoring public and pedestrians than any other group. They are the ones who constantly are in contact with the members of their community. In the first place,, school children are placed under their care and protection on the way to and from school and the police should not let this opportunity pass in dein- n; 46 . 29th National Safety Congress onstrating to the children that they are present for their safety and protection. By showing a real interest in die children and by their demeanor and conduct toward them the police will implant in the minds of these future citizens a favorable and lasting im pression of duly constituted authority. Furthermore, by conducting themselves as gentlemen at all times in directing the constant flow of motorists and pedestrians policemen will gain public support The conduct of our police officers in the court room is of the utmost importance. I am quite fearful that we who are accustomed to courtroom procedure lose right of its im portance and its effect on the general public. It is our duty to realize that more.people gain their first impressions and perhaps their last of law and order in a traffic court-, than from any other tribunal. The impres sions acquired there of justice, law-enforce ment and legal procedure may have an im portant bearing on their future conduct If they see the dignity'of the law upheld and thereby gain a wholesome respect for law and order, ottr .work has been well done. If, on the other hand, they find the court room to be untidy, noisy and disorder!}', we will have much to answer for. The Officer In Court It is therefore necessary, that the Judge conduct the court affairs in a dignified man ner and it is likewise necessary that the police officer riiould do his part He should never slouch down in his chair, especially when testifying. His testimony should be given in a dear and convincing manner; he should avoid the use of any slang ex pressions and address the court and at torneys respectfully. He should be . alert to all the proceedings and never alknr- him self to lose his temper. He should not be vindictive towards the defendant or any witness and above all, he should he courteous and polite to every one. Such conduct will always merit the respect of the court' for that officer. What the National Committee on Traffic Law Enforcement Found By GEORGE WARREN Special Counsel, National Committee on Traffic Law Enforcement The Committee, composed of judges, . The recommendations of the sub-commit- prosecutors, police executives, and other tees eover%enforcement practices of the safety authorities, was organized in May,' policed and of die traffic courts and prose 1938, to.-conduct a nation-wide stwfyt&f''- cutors^ (Thef report on traffic courts had * traffic law enforcement procedure. Arthur ,alread}HbMttjapproved by the American Bar T. Vanderbilt of Newark, N. J., Past-"-' Assn.) . X- President of the American Bar Association, is Chairman. Franklin M. Kreml, Director of the Safety Division, international Asso ciation of Chiefs of Police, is Secretary. George Warren of the New Jersey Bar is Secretary of the Sub-Committee on Courts. A. R. Forster, Director of Training, North western University Traffic Institute, is Sec retary of tiie Sub-Committee on Police. Upon conclnribn'-'l^f 'the report, it was votpd to endorse thereport of the National Committee oik TrafficJLkw Enforcement This endorsemeht~-feas confirmed by the Street and Highway Traffic Section at their luncheon-business meeting later in the week. The reports of both sub-committees ap pear below. , Summary of Recommendations Traffic Courts and Prosecutors Traffic Laws 1. Traffic laws with inherent defects should be revised and those which are un enforceable or unnecessary should be re pealed. 2. Traffic statutes should be founded upon the "Uniform Vehicle Code" and the "Model Traffic Ordinances" with only regu lations purely local in nature left to local ordinance. However, an exception should be Street and Highway Traffic Section 47 - made where- this would result in ousting 15. Traffic judges should not be selected (local courts from.jurisdiction to try traffic by local authority or on a :k>calized basis violations. ! where appointment or election on a wider Traffic Courts scale is posable. 16. The selection of alternates for traffic 3. All courts should treat traffic cases judges should be safeguarded. apart from their, other business. , 4. Special courts for traffic' cases are necessary when the number oi cases reach 7,500 per -year with'a violations bureau in operation, and' 15,000 cases per year when there is no bureau. ., 5. The ideal traffic ; court organization would be on a state basis with various dis trict - courts, and with circuits operating from each district 17. Where, more than .one magistrate is available for the traffic;bench, it is recom mended that one judge Im. assigned to that post permanently or for a long period, rather than the use of a., system of rotation of judges; * 18. Traffic judges; should he. under the supervision of a chief magistrate who should be given regulatory powers. 6. Physical courtroom conditions should Prosecutors be unproved as to facilities, arrangements, 19. It is recommended that the tide deaitiiness, and appearance. - "Prosecutor" be eliminated in favor of 7. Tbetaxing of courts costs, as-a separate "Public Attorney" or "Public Solicitors" or penalty should be eliminated, and the fine a similar term. assessed in doie sum. If costs are included, . 20. "Prosecutors" should be assigned to they should be in-a reasonable amount traffic courts for aid in the disposition of Violations Bureaus cases. 8. Violations bureaus are to. he used only when .file number of traffic cises malm it impossible for the court to properly dispose oftth^m. 21: Where the information on the ticket or complaint does not afford the prosecutor sufficient detail, the arresting officer should ,be required^to famish him yrith an^ddi- tional report. )' ^ 9. The basis for all violations bureaus .should be a signed plea of guilty and waiver jof trial. 22. Prosecutors should not be used for the purpose of deciding whether a traffic viola tion should be brought to trial. Id Schedules of fines- cbarged at die vio lations bureau are not to be alterable Defense Counsel 11. The bureau should handle the least 23. Bar associations should interest them hazardous violations and should deal with, selves in ascertaining what the function of moving offenses only when they respond-to a lawyer in the traffic courts should be, and treatment outside the courtroom. Major in encouraging the maintenance of that traffic law violations should never be ban- standard. dled in a violations bureau. - Traffic Court Procedure 12. Assuming conformity with the recom mended basis for violations bureau .juris diction, the payment of fines by mail, prop erly safeguarded, is recommended. 13. Fines assessed at the violations bureau should be In average amounts used by the 24. Preliminary hearings in minor traffic cases should be eliminated. -~ 25. Summonses and tickets shotddjbe re turnable on particular days assigned to of ficers. . judge for die same offenses, and should be 26. Where the volume of eases, is latge the scaled higher for repeaters. time of appearance should be staggered Traffic Judges according to the type *of offense. 27. Complaints other than^tiobets are un 14. Traffic judges should recognize the necessary and should not besused in traffic fact that a knowledge of traffic laws, traffic cases where the officer witnessed the viola- r policing and engineering is necessary in tion. addition to a legal 'background apd should. 28. Dockets should be kept by the court aim to obtain an understanding of these clerk's office and traffic cases should be kept . factors. . in a separate docket 48 29th National Safety Congress 29. Dockets should be in duplicate, the 43. Clerical procedure should be revised disposition to be marked on the original by for the purpose of permitting audits, allo the judge at the time of trial. cating responsibility and providing checks 30. Each defendant should be treated as a single case regardless of the number of charges against him. on the handling of cases before they are tried. Records 31. Appearances should be enforced by the 44. Traffic Judges should be furnished service of warrants through the police de with the traffic record of the defendant by partment and by additional fines. the police department, to be used only after 32. The traffic court judge should be made solely responsible for the granting and use deciding guilt in the present case, for the purpose of assessing the punishment of continuances. 45. Drivers' records should be state-wide 33. Continuances should not be used for the purpose of allowing violators an oppor tunity to obtain the money needed for the for maximum effectiveness and made avail able through police departments to traffic courts throughout the state. fine. Instead, surrender of die offender's 46. Traffic courts should keep daily cu license until payment is made is recom mulative records, broken-down by division mended. i into the common offenses, and published at The Jury least annually, 'Conviction Reporting 34. The use of juries in trials for sum mary or minor traffic offenses should be 47. Bar associations and other interested eliminated. groups should interest themselves, where necessary, in the problem of the failure of Appeals judges in traffic courts to report convictions 35. There is need for the study and re as required by state law. vision of the appellate procedure available to persons convicted of traffic offenses. The Justice of the Peace 48. The justice of the peace system is out Conduct of a Traffic Court moded and its plan of organization, in 36. There is a general need for higher standards of decorum and courtroom pro cedure in traffic cases. Punishing the Traffic Violator 37. Juvenile traffic violators should be treated by traffic courts except where a behavior problem is involved. effective for good traffic law enforcement It is recommended that the justice of the peace should be replaced for the trial of traffic cases by a state-wide system of reg ular courts with trained . personnel func tioning on a circuit basis from centrally located seats and under the supervision of a diief judge. 38. Rigid and set fines (as distinguished Qualifications and Supervision from flexible standards) for the various 49.* Minimum qualifications should be traffic violations are to be discouraged. prescribed for candidates for the office of 39. The utilization of effective methods justice of the peace. other than fines and sentences for the pun ishment and treatment of traffic violators, should be encouraged. 50. The basis governing the number and location of justices of the peace should be revised to allow the existence of a reason 40. The primary aim of the traffic court able number of officers and an efficient dis should be to Impress defendants with the tribution. need for traffic law observance rather than . 51. Adequate supervision should be pro- to penalize. :. vided, and regular inspections made of all The Fix : functioning justice courts. 41. Reduction of charges in traffic cases Fee System and Salaries should be a judicial power and. exercisable ; 52. The present fee system in use in most only by the judge. states as a method of remuneration for 42. Judges should hold police officer, justices of the peace, should be abolished prosecutor, or both, strictly accountable for and replaced' by a means of compensation deliberate attempts to weaken the case against the defendant Recommendation* numbers 49 to 57 are subject to recommendation number 48.. I Street and Highway Traffic Section 49 . 1; \ not dependent in any manner upon the deI cision in the case. 53. Where practical, fair and adequate salaries should be given justices of the peace. Administration of Justice 54. Courtrooms should be furnished to justices in the various localities.' 55. The choice or selection of a particular justice court by the arresting officer should not be permitted if the practical necessity therefor is removed. 56. The practice of taxing costs should be eliminated. 57. All justices should be furnished with, and required to keep, satisfactory dockets, financial and other records, and should be obliged to report to a county or state office at least monthly. Summary of Recommendations Traffic Police I. ENFORCEMENT REQUISITES Organization and Personnel Administration 1. The principle of specialization should be 10. Commanding officers of traffic units fotlowed in police organization for traffic should be selected upon the basis of their control , personal and professional qualifications for 2. Traffic divisions, incorporating all such duty. functions of traffic control, should be set up 11. Commanding officers of traffic units in city police departments as major units oi should be given rank -and authority com theorganizatiou. mensurate with their responsibilities and the 3. All uniformed units of city police de partments should participate to the greatest . relative importance function. of the traffic control. possible extent in the traffic law enforcement 12. The commanding officer of' a traffic. priigram. division should have an-adequate number of ) 4. Traffic officers should be carefully ' selected upon the basis of interest in and commanding officers to insure proper direct supervirion of personnel and activities. aptitude for traffic work. 5. The personnel strength of traffic units in any city should be proportional to the . demands imposed by local conditions. 6. Most efficient possible use of present available traffic personnel should be sought as' a prerequisite to attempts to secure additional personnel. 7. Traffic assignments should be made at tractive to qualified officers by elimination of unnecessary undesirable aspects of such assignments. 8. Special headquarters units for func tional superviSieiTof traffic work should be set up id state departments. 9. Organizational specialization as prac ticed in cities is not practicable at present in state departments, but the amount of traffic work done by all state - officers should be proportional to the importance of the traffic problem and should be directed on the basis 13. Training- in administrative duty per formance should be provided for command ing officers. 14. The administrative responsibility in traffic control should be conceived of as in volving program planning, supervision, and support bunding, rather than merely rou tine personnel supervision. 15. Detailed performance records should be maintained and studied as a major step toward effective enforcement administration. Training 16. Recruit training schools should in clude approximately 75 'hours of traffic in struction. , 17. General in-sejrvice schools should in clude approximately 30 hours of traffic in struction. 18. Special in-service courses should be conducted for each traffic unit in city de partments. of recommendations of. the headquarters 19. Traffic instruction- should provide at traffic unit. tention to various topics in proportion to 50 29th National Safety Congress their importance and die needs of the par* ticular class being taught 20. The quality of training roust be kept at a high level by careful attention to course content planning, selection of qualified instructors, employment of effective teaching methods, etc. 21. Training most be. of such character as to "sell" as well as present instructional matter, 221 Training roust be used as an aid to. not a substitute for, execution of a sound enforcement program, II. ENFORCEMENT PRACTICES Policies 32. The use of arrest quotas should be The importance of police enforcement pol icies as an influence on the quality of en forcement, and the necessity of determining such policies, demands careful attention to their development, in accordance with the following principles: avoided; desired levels of- enforcement should be considered only in general admin istration of the program. 33. A low level of enforcement quantity should be raised by gradual steps rather titan suddenly to the desired level. 23. Policies should be developed by ex ecutive officers and in general uniformly followed by all personnel 24. Policies should seek achievement of proper balance between the needs for rea 34. Police should refrain from traffic case fixing; follow practices which do not en courage violators to seek special treatment, and enlist cooperation of other agencies in its elimination. sonableness and of effectiveness in enforce ment Assignments . 25. Enforcement action should. be taken on the basis of commission of violations, without undue consideration of such de ments as intent, degree of hazard, frivolous excuses, etc 26. Non-resident violators should gener ally be treated in the same manner as resi " Lade of selectivity in enforcement, and curtailment of patrol strength by special assignments greatly reduce efficiency in traffic police work. Elimination of these faults is the first step to be faV to In crease and improve enforcement; as recom mended below: dent violators. . 35. Motorized traffic patrol assignments 27. Tolerances should be granted only -- should be based wholly in dries and insofar' when, and to the extent that such action as possible in. rural areas upon study of makes possible more efficient reasonable, accident records to secure maximnm pos and effective enforcement than would let sible selectivity as to times; places and viola ter of the law" enforcement tions. Selective enforcement should also be. 28. The gap between an existing and a applied by other units of tity departments. smaller desired tolerance should be dosed 36. Assignments should be based upon gradually rather than suddenly. regular periodic studies, of those accidents- 29. Warnings should be used to augment of a type controllable through enforcement arrest activity; a printed form should be 37. Arrest records should be analyzed to issued, a copy being retained for filing.; re determine the degree of selectivity in en peaters should be prosecuted. forcement actually achieved. 30. Arrests should be made for major vehicle defect violations, and a defect no tice, to be returned with proof of correc tion, for minor defects. i 31. Enforcement quantity should be meas ured in terms of convictions, tiring the "en 38. Drains on . patrol strength should be-' reduced fay elimination of special details where the public interest is not served, and by reduction in other noo-patrol duties of motorized officers, particularly school cross, jug assignments. forcement index," .and maintained at the level of maximtun effectiveness as deter Tacttca mined for each jurisdiction on the basis of Tactics employed in the execution of the analysis of the local accident and violation enforcement program have a great bearing: experience. ; on' its effectiveness. The following pro- Street and Highway Traffic Section 51 . cedures arc recommended with respect to employed only where it affords the only . f leading issues in this regard: / practicable means of securing needed speed 5 39. Single officer traffic patrol should be law enforcement maintained to the greatest possible extent, in the interests of effective control, subject to' necessary modification to insure safety of officers. 44. The "traffic sampling" technique should be used only to the extent that it can serve as a helpful and necessary adjunct to patrol operations in controlling violations 40. Motorcycles are most effective in city, traffic patrol work Cities suffering a high accident rate for motorcycle officers can reduce this by improved tracing and supervision. Gties frequently unable, because of adverse weather, to maintain motorcycle of a type not easily controlled by other < methods of patrol work The technique should be selectively employed, with avoidonce of "drive" aspects or undue disturb- of normal traffic movement through large scale blockades. patrol should regularly use a fleet compose^ . 45. Citizen violation-reporting groups do of both numbers Oscars and motorcycles, not effectively augment regular enforcement maintaining patrol in the former alone when activities and their creation by the police is weather conditions require. Automobiles are not recommended, superior in generalfor rural highway patrol 44. Chemical intoxication tests should be work and should be used except m areas employed by police as the basis for proswhere the motorcycle's advantages commend ecuting persons driving trader the influence 41. Traffic patrol cars should be dearly designated for dose-range identification but not extremely conspicuous. ofliquor. 47. Effective enforcement attention must be directed to violators involved in acddents through more and better investigative 42. Both open patrolling and semi-con- work and through prosecution by police ceahnent methods should be employed, each rather than dtizens insofar as possible. to the extent necessary for proper traffic supervision and adequate violator apprehension. Complete concealment and other forms of .deception should be avoided. 48. Case preparation and court , work of police must be improved to provide doser coordination of* the work of all enforcement agendes and more effective enforcement ) 43. Speed violator detection should be accomplished primarily fay having patrol officers pursue and pace cars. Mechanical speed checking over measured distances should be 49. Warrant/service must be improved both as to percen^ge of service and effideney of police procedure in handling this: job. < { WEDNESDAY MORNING SESSION October 9,1940 Group Session on Public Education . Presiding: Paul F. Hill, Director of Safety Education, Department of Public ..Safety, State of Iowa, Des Moinevla. ' Training the Adult Driver By MILDRED Y. McKAY Director, Adult Education, Cleveland Automobile Club, Cleveland, O. Perhaps part of the . price we pay forlorn- motor transportation could be eliminate! if we spent a little more time; money and effort on the two-bit driver, who Is using the Ml- lion dollar highways, and the thousand dol- lar cars so carelessly, Veiy little has been done directly for the man behind the 'wheel---the driver himself. 52 29th National Safety Congress The driver has been given roads, cars, regu driver more aware of the serious responsi lations, and the cooperation of the enforce bility he owes society whim he exercises the ment officials, but he has not been taught to privilege of piloting a car on a public high use them properly. way; they impress upon him the fact that It becomes obvious, therefore, that spe part of his responsibility as a driver consists cific, as well as general things, must be of seeing that he is physically and mentally done for the man who attempts to guide a competent motor vehicle. Accidents happen singly and The second part of a complete program is to individual drivers. It is fay reaching indi a series of classroom lessons. As much as vidual drivers that an effective fight against possible should be taught in the classroom these accidents can be waged. because here a huge number can be handled Now, our problem is, just what are some fay one instructor at one time, thus substan of the specific things that we can do to tially cutting the costs. In the classroom the help this man, who drives or intends' to student can be taught the names and .posi drive, do a safer and more intelligent job? tions of the various parts of the car, their The American Automobile Association has been giving this problem a great deal of thought in the past few years. The result functions, and the driver's part in control ling tiie vehicle by means of the levers, pedals, buttons and knobs. of this, plus a lot of hard work and some, There is a three-fold objective in includ money, has resulted in a driver-training pro ing this kind of a lesson in an adult driver gram. This program has taken, hold very training program. First, to have the driver firmly in the high schools/and attention is handle tus tar more intelligently because of now being given to the adults who do not his understanding of it; second, (this is hare the opportunity to learn about traffic particularly important with the more timid safety in school. drivers), to give them more confidence. By The aim of adult driver training is not understanding what makes a car go, the)' only to teach the driver the actual skill re lose the feeling that it is some mysterious quired, but to bring to his attenti<m aff*the monster which may break through the traces possibilities at his disposal to .obtain--the'', and do unpredictable things. Third, to. give maximum pleasure and safety fromJriving.^ the driver- an understanding of the care a What can we do to reach these aims? car requires. When 49 of the best drivers in the United States were asked to what the)' Of course, the most desirable procedure owed their good records, "Keeping the car would be a complete driver training program 'in good condition," led the list . for each new driver and a retaining proce dure for many old drivers. There should be an opportunity in the classroom to study laws and ordinances. -A Training Program . Attention should be given to the develop A complete driving program should have ment of a commendable driver attitude. three major parts: First, a series of driver Courtesy of the road should be discussed tests to ascertain whether the applicant is ' thoroughly along with sound driving prac physically, mentally and emotionally capable tices. of handling a car safely. Once aware of With such a program a new driver would his difficulties, the individual can he taught, not be permitted to guide an automobile in many cases, to compensate for them. For until he has first proved himself to be physi instance, some individuals have a low resist cally capable of handling a car safely and ance to glare. When they pass a car at night has learned as much as possible in the they may have to drive for seven seconds-- classroom. Dual-control cars should be sometimes even as long as 12 seconds--be .used for his road lessons and this should fore their eyes become readjusted and they not be an obstacle to any group interested can again see clearly. Such people have a right to know how great a hazard they are and to realize how necessary' it is that they refrain from driving when it would subject them to glare. in promoting training of this land. There was a time when dual-controlling might have been an elaborate and expensive proc ess, but now almost any good mechanic can put duals in a car at a .cost not exceeding There is a definite psychological value, $25, at the very most, and it can .be done for too, in these tests. They make the new less than half of that Street and Highway Traffic Section 53 Ideally, the new driver should spend at Even after a complete training program, least two hours where there is no. traffic, lack of experience is bound to play a part or, at least, until he has learned the funda in the driver's career for a short period of mentals of clutch and brake control, shifting time. During this period of formation and and judgment stops. That is, judging the setting of driver habits, he is apt to react speed and distance so that the car can be a little more slowly than a more experienced brought to a smooth stop on a four inch driver. His judgment will probably be less line. He should be kept away from other accurate, he may take too much or too drivers until he has learned to start and litde .room on a corner, or do other things stop his car on a hill' without sliding bade; equally as annoying to the experienced driver hand signals,, steering, and road positions and which may be contributing causes to of cars about to make turns. This is a very an accident. For this reason, while we are. different procedure from the trial and error talking about training the driver, let us also method which has been used in the past and, teach him to identify himself for his own for the most part, is still bang used in and others* welfare. A simple'means of this so-called enlightened age. identification is a new-driver plate that can A private training field has been opened by the Cleveland Automobile Gab. This field was developed from a vacant lot and, although smalt in size, contains many of the traffic situations, .which are to be met on the road. There are cross streets with varying angles of intersection, railroad tracks, a traffic light, a three per cent grade, a fifteen per cent grade, curbs for parking lessons, be attached either to the license plate or the bumper of the car. Many hundreds of these are now in use"in Cleveland. There is no patent or copyright on these plates and the proper launching of new-driver plates for the protection of both old and new drivers in your community would be a large step towards greater traffic safety and fairer highway usage. angle parking lines, pedestrian crosswalks, Perhaps one of the largest problems in etc. reaching and training the driver is to make Trained Instructors Needed the driver, himself, realize the necessity of this training. For so many years drivers Road lessons should be given only by trained instructors. The best drivers are not' always the best' teachers. From the qualifications .that are offered by applicants for positions hs-instructors one would think that a no-accident, record over a period of have been learning by the^Jfmes method, with which you are all.familiax^f!am sure, that the idea of talong^riie tirajs^fo really study the; tiling out appaSttsTtfiam. A course'of training such as we have been discussing"ferheing offered in many cities by time was the only requirement The most the motor clubs, on a cost basis. In.some difficult job in conducting ^program of states, the state is attempting to take over this kind is . to get good teadfcr&who have driver-training and is operating through a background of good ..driver training. its state highway patrols. Three-quarters After instructors arif selected drey should be given a carefully, worked out course of study. After three years of experimentation, detailed lesson plans and corresponding as signments in the AAA Sportsmanlike Driv ing Book have been, developed.- If these as-, signmoits cannot be followed by classroom discussion, question sheets can be. used as of my.'class in driver training at the Na tional Institute for Traffic Safety Training this year were, state highway men who were doing, or intended to do, driver training as part of their duty as officers. A program of this kind could fall naturally into the state accident prevention program. The Financial Side { a' study guide and as a check of the stu We have had such a school in Cleveland dent's diligence. These question sheets, as three years, and each year has seen it grow they have bgen developed by the Cleveland until now it is enrolling from 150 to 170 Automobile Club, cover die assignment and students a month. Because we have no funds the road lesson of the day and must be. with which to subsidize such a protect filled out and returned before the next the-cost must be borne by the student. The lesson period. The instructor can quickly need and the desire of the public that such correct any mistaken idea die student may training be available is readily seen in this have before permitting him to progress. . instance; When people are willing to pay 54 29th National Safety Congress from $15 to $25 to learn to drive correctly, think of the hundreds and even thousands in this one city who would welcome the op portunity to be taught correctly if they were but given the chance, free of charge, or at most, bear only part of the expense Such a program is costly and people ask, '"But what can we do if we can't have a complete driver-training program? Is there nothing we can do?" Of course there is. Much can be accomplished by inside courses which are not costly. One instructor can handle 100 or more at a time These courses, which we have given in Cleveland, have proved as valuable to drivers as to non drivers. Experienced drivers welcome the opportunity to learn more about sound driv ing practices, laws and ordinances, the care and upkeep of the car, etc: These courses can be started through your PTA's, Women's dubs, luncheon groups, etc Any civicminded organization can obtain the services of a teacher and promote such a course or, better still, interest the local AAA dub to work with you. It is true that individuals who have' been taught in an indoor class have not actually been taught to drive, but they are individuals who are determined to learn. Regardless of who their teacher is or will be, they are going to be better driv ers for the efforts put forth in the class room. I have been asked in the past if drivers who have been carefully and scientifically, trained have better driving records than others. We are well on our way to prove that they certainly do have. The records of 854 individuals were taken from our files. These former students ranged in age from 16 to 75. Their driving experience was over a period of from one to two and a half years. The police department checked their records carefully for these names and found only five. violations against diem. Three were for light crashing and two for.speeding. Our next task was to take from the state files, names of persons, that matched as to age, sex, occupation, and driving ex perience die 854 taken from our files. These people had learned in some manner other than a scientifically planned course, and we wanted- to determine whether trained driv ers, made better driving records than those who learned in a hit-and-miss fashion. To date 100. names have been matched, and. out of the 100 names there have been found three with violations against them in the police department One was for cutting in at a traffic light and driving without a li cense, another for an improper turn at an intersection, and the third for light crashing. If this sample is at all representative of the rest we are seeking, we can expect to find approximately 25 violations as against five found in the trained group. Reaching the Rural Driver and Pedestrian By HERBERT B. SIMPSON Executive Secretary, Utah Traffic Safety Council, Salt Lake City, Utah just because accidents occur in rural areas it is no indication that the operators in volved . necessarily reside there. From the number of people involved in urban,accidents who reside in rural areas, it appears that all drivers and pedestrians must be reached if we are to show a material improvement The best way to attack this problem is by a state-wide safety program. The first step should be to. secure improved accident re porting, particularly from rural areas. Ac cident reports must be analyzed to deter mine the type, location, time of occurrence, and residence of drivers and pedestrians involved. In addition to this, the habits and general characteristics of the residents" of the state should be studied to determine tile most effective ways of reaching the public generally.-;For example, if.it..can be de termined fthat a large percentage of the population are ardent church members this presents an ideal means of reaching the people. In like manner, if a certain com munity is engaged principally in agriculture, contacts, can be made through farm dubs. . Every possible means of reaching the driver and pedestrian should be,employed. Utah fa.attempting to reach the rural pedes trian and driver'fay its state-wide, standard safety program. Our organization indudes a committee of state department heads known as the Governor's Traffic Safety Co- crea mon Street and Highway Traffic Section 53 i ordiMating Committee, and the group known gram. For example, a magazine supported 7 as the Utah Traffic Safety; Council, com by the farm clubs devotes considerable posed entirely of private citizens. These two space to traffic safety every month. groups cooperate closely. Radiograms Effective As a result, rural traffic deaths have de creased 15 per cent during the first six months of 1940, compared with the. same . period of 1939. During this same period rural pedestrian deaths declined 23 per. cent In . obtaining publicity we have not over looked the radio, and have received excellent cooperation. While for some time we used public speakers for' radio talks and spon sored other programs, it has been our ex About 70 per cent of Utah's population is perience that the most effective method is grouped in a relatively small area in and through the use of short messages such as surrounding its three principal cities. The radiograms, that ran be given from the' balance of the state is rural, with scattered studio when the opportunity presente itself. small Cities 'of 5,000 population or less. A series of these ' messages is furnished While considerable effort has been put forth weekly to all stations in the state and have by state officials and the Council in assist been put on the air daily without cost to ing the cities in their safety program, we are the Giuncil. Most of the. stations use these dealing with, the traffic problem on a state in connection with the regular news broad wide basis, and - endeavoring to reach1 all casts. ' drivers and pedestrians. Newspapers Cooperate The. Utah Traffic Safety Council issues a monthly fnim<K>graphed safety "News The papers of Salt Lake City have co Bulletin." This is a 25-page booklet which operated wholeheartedly with the state pro outlines the-progress of the program and gram. They have state-wide circulation and contains statistics and all pertinent informa their policy of giving traffic safety a prom tion relative.to^traffic accidents and preven inent place has been of great benefit. One tion work. This is distributed to city and paper carries a series of blade and white county officials, chairmen of safety com flags to indicate the status of traffic deaths, mittees of service and civic organizations, not only in Salt Lake Gty, but in the heavy school superintendents, editors of news % populated areas of the state. This creates papers, church groups, and Members of the } community interest to "keep the white flag Safety Council. Mach of this material has flying" in their community. been copied by the country press and is also Instead of merely relating the fact that a serious accident has occurred, in every in stance possible a diagrammatic picture is used by Council members .and others as a background for safety talks, and by church and school groups. printed showing the details of the accident Traffic safety circulars have been dis- scene, the cause of the accident, and how it tributed. For example, through the coopera could have been prevented. Arrows indicate tion of the Utah'Liquor Control Commis the direction of. the cars, or the pedestrian sion, during the 1939 Christmas holidays involved. t. .. each purchaser of a bottle of liquor received These papers have also been instrumental a leaflet bearing the following message: in urging better aeddent reporting. In spe cial instances of. failure to report an acci dent, publicity has been given with the result that traffic officers are reporting promptly "Dortt turn holiday cheer into gloom. Drive carefullyI "Many serious accidents are caused by drinking drivers and pedestrians." rather than have their inefficiency played up This apparently was effective, as no fatal A in the papers.. accidents involving liquor were experienced f,_,>.The fact that the leading papers of the during the holiday season. A'State are devoting'so much space to the. Another very effective, contact was ob /traffic problem, often on front pages and by tained through the cooperation of the Pub excellent editorials, has opened the eyes of. lic Welfare Division. Safe Walking 'rules the country press to this type of news. Now were mailed out with the relief checks. In country papers are devoting more space to asmuch as this circular was thus placed in traffic safety. All of this Is having an effect, the -hands of all persons.on relief, a great on the driving and walldng habits. Local portion of which were elderly non-drivers, magazines have given publicity to our pro the class most prone to pedestrian accidents, 56 29th National Safety Congress it is difficult to overestimate the importance of this approach. The State Road Commission has recently adopted the new standard for pavement marking of "No Passing" zones, and in co operation with the Commission, the Council has circulated a pamphlet containing infor mation with regard to the meaning of the new marking, and also containing important traffic safety rules. This has been "distrib-. uted 'through filling stations and with oil company monthly statements; by church groups, and in other ways by which drivers can be reached. Schools Included ' .This fall each school child is taking home to his parents .a letter containing safe walk ing and driving advice. This letter is similar to the one used in Des Moines, but we arc doing this on a state-wide basis, a^jd every' school child in the state is bringing this safety message home to dad and mother. Another phase of the program was the development of a traffic safety course for elementary and secondary schools through out the state. Two colleges have made avail able a teachers' training credit course in traffic safety', and we are slowly acquiring trained personnel to carry on this important work. Safety' Council members and highway pa trolmen have given safety talks before elementary and high schools, and film strips and motion pictures have been given in the major high schools throughout the state. Particular emphasis has been placed on rural pedestrian problems , in all school and other public gatherings. The Mormon Church has rendered in valuable service in traffic safety education work. From 75 per cent to 90 per cent of the rural population are members of this church and a substantia! number attend at least once a week. Early this year the Presiding Bishop di rected a letter on traffic safety to all Ward Bishops, asking them to take an. active part in the program. This letter was read in every sub-division of every ward. One outstanding feature of the church is that once a month visiting teachers contact each home in the ward. These teachers have carried the safety* message to the homes, both verbally and in printed form. The Church holds a semi-annual confer ence in Salt Lake City, which is attended by representatives of most of the church sub-divisions, and at the close of each ses sion of the conference, church leaders cau tion all in attendance to drive and walk with care. Early this year the church cooperated with the principal outdoor advertising com-panies and erected 110 safety panels in rural localities, dealing primarily with the. drink ing driver. Enforcement Plays Part We have not overlooked the important item of enforcement which..has a definite hearing on rural traffic problems. In addi tion to increased arrests, the State Highway Patrol hais taken an active part in our cam-' paign by warning pedestrians found to be violating safe-walking rules. The Enforcement Committee of the Council has stimulated the training program for rural traffic officers and has conducted meetings* in the larger counties, which were attended by judges, state patrolmen, sheriffs, city police, service club members, and citi zens interested in traffic safety. Accident' reporting, particularly from rural areas, has been greatly increased. In this connec tion, 5,000 accident reporting posters were prepared and distributed in local police headquarters, public buildings, and filling stations. Driver Licensing Tightened ,, Prior to the existence of the Council, drivers' license examinations were conducted by the Patrol as part of their routine duty, but, as a result of the study by represent atives of the National Safety Council and their effective cooperation and direction, this important function was turned over to a newly created division of the Motor Vehicle Department. The National Safety Council and the American Association'x>f Motor Vehicle Adr ministrators conducted njn intensive school for drivers' license examiners. A new filing. and record system was adapted, as was the minimum standard examination. In addi tion, a driver's handbook, containing impor tant driving rules and regulations, was pre pared and distributed. The newly trained examiners conduct this rigid examination ; at all county seats at regular intervals. ' Drivers' license checks of blockades are conducted at rural locations. We found in impr studi suits calle it wa engit Thes sistei recoi chan revis sidet ' past Street and Highway Traffic Section 57% Snanv cases where rural drivers had been operating a vehicle for several years without a driver's license, and their attitude was such that a license was unnecessary as they had never before been asked to produce one. In addition to the regulatory effect of the blockades, the newspaper publicity carried on in conjunction with this activity has created .in the minds of all citizens a higher value of their driver's license. As a part of the new*, driver licensing pro gram. an individual driver's record w*as in stalled and records of all arrests, warnings, and accidents are filed in each individual record. When any driver develops a bad record, the Motor Vehicle Department takes prompt action to call i.t to his attention. In many instances, a warning letter from the department has been all. that was necessary, but so far this year, revocations arid suspen sions have increased over 100 per cent, com pared with last year. Traffic Engineering A traffic engineering division has been set up and all locations having three, or more traffic accidents during the past year' have received special study. Many engineering improvements have been made where intense study warranted these revisions. The re sults of these engineering studies have been ./called to the attention of the Patrol when it was apparent that enforcement rather than engineering was needed at certain locations. These engineering improvements have con sisted of the installation of adequate lights, reconstruction of hazardous intersections, channelization of important highways, and revisions in speed zones. Fifty miles of rural sidewalks have been constructed during the past year. -One hundred and forty railroad grade crossings were equipped with train actuated warning signals, and forty-one little used grade crossings were closed to vehicles. While Utah is fortunate in that the greater portion of its laws are. in conform ance with the Uniform Code, there are many important matters of legislation which arc being considered by the Council. 1 In attempting to reach the rural driver and pedestrian, several facts should be borne in mind. It should be remembered at all times that, although .practically all of the people favor traffic `safety programs and endorse them heartily,-they invariably forget that thej* also need the protection afforded by. the program. It is our. opinion that the entire program must be directed with this-1 thought in view, and activities must be car ried out along all lines, and with such in tensity, that it is impossible for.drivers and pedestrians to escape the effect of at least one or more phases of the program. Even- effort must be made to secure and maintain the support of the press and radio; all schools must share their portion of the burden in safety educational work; and church, civic, service, and fraternal or ganizations must be made to realize that the responsibility is partly theirs and a portion of their work must he devoted to traffic .safety. Rural traffic officers must be trained and the program of the Highway Patrol and the local officers must be correlated in . a broad plan of selective enforcement. An engineering study must be made, of all rural traffic accidents, and suitable action taken by means of enforcement and education, as well as engineering. The Problem of the Adult Pedestrian By MORRIS M. NAUMOFF Education Secretary, Better Traffic Committee, City of Pittsburgh, Penn. The pedestrian, is not the "forgotten Basically, the problem of the adult pe man" of traffic; he is the "sick*' man of destrian is one of understanding his actions; traffic whose equal rights have been scorned the reasons for them, isolating any future in favor of the motorist Too many-pallia malignant growth, and setting about ear- tives have been administered the pedestrian jnestly to cure the mental and physical, ills. while his rich neighbor, the motorist, has been given cveiiy possible.attention, The ills, ... A Recurring Pattern of the pedestrian have not been solved by The pedestrian pattern is a recurring one. the clinical observations of safety* experts. Year after year the accident figures will The . patient needs a complete study. bear out definite similarities in structure and r.- $? V: 5 58 29th National Safety Congress design. Plot these graphically and the trend will be almost the same for places of occur rence hoars, actions, days of the week and ages. The significance of these figures must awaken one to the need for more intensive studies. The adult pedestrian must be considered in a far different light than the young pe destrian. The complexities of life are all too largely responsible for the over-weighted numbers of accidents in the older age groups. Perhaps certain factors may be brought to light' which will give us a clearer insight and understanding of the adult pe destrian accident problem. . I believe we have made careful studies and analyses of the how, when and where factors of the problem; bul l do not believe we have even begun to understand the why. With the adult pedestrian there -is the influence of "competing attentions" when he steps off the curb to cross the street. He may be engrossed in his business or per sonal problems and his street safety has been subjugated. There is another action committed intentionally or unintentionally, which might be called "social facilitation." That is, the pedestrian follows others who have started to cross the street in midblock or against the red light, because they made the opening wedge for him. Stand at any intersection in the business district, whether it is signalized or not, and observe the number of people who step off the curb, hesitate for a moment while immediate traffic is rushing past; and then watch them gather courage and make a bold dash across the street Many adults cross streets under a "vol untary assumption of risk." They know fully well the hazards of street traffic; still, they cross where it is most convenient For them the comer is too man}' steps removed from the center of the block when their destination may be only directly across the street Then, too, there is that group of adults who practically live in traffic. These are the business and professional people who are constantly on the same streets, encounter ing the same conditions of traffic day after day. They have acquired' too great a fa miliarity with the volumes of traffic at cer tain points in the business section. They have developed an assumption of safety based upon repeated experiences and they continue to follow their modes of crossing streets where, when and if they can. Here habits have been formed. A few more examples of the crossing habits of people: a group of adults are gen uinely confused by traffic in general. This is a mmority class, consisting of the for eign element or very aged pedestrians. Then too, there are parents, women particularly, who, when shopping, drag their children across streets against the red light, or in the middle of the block. There are many who dare to cross in congested areas in the same manner they do in their-own neighborhood where traffic is lighter. There are others who cross without even looking to see the color of the light; and only after stepping into the street do they be come concerned about oncoming traffic and signals. The problem of the adult pedestrian is one of reconditioning his habit patterns in traf fic. It 'obtains^ then, that since he cannot be taught in die same manner as children, his safewalking habits must be made his even-day way of living in traffic Public Education Public education achieves its desired ef fects when directed at pedestrians in a "point of need" manner. This means reach ing the pedestrian at the time and place when and where such education is needed. Where the necessity exists to re-condition walking habits of adult pedestrians in the congested areas, media intended to correct those unsafe walking habits must be insti tuted. Where people cross against the red light and an officer is on duty, one of the. best methods would, be to instill in tire officer's mind that he must safeguard the pedestrians, as well as to expedite traffic It would be best to phrase for the officers throughout the area the words they are to use in. cautioning or directing pedestrian traffic, thus creating a uniformity of usage, .the repetition of which will be more im pressed upon the people Another approach which can be used by the. officers would be positive in direction and effect, such as pointing out to violators the examples of safewalking habits of others: Embarrassment by the officer should be avoided at all times, for smart-alecky re marks will do more to kill the intent than any other factor, since the public will soon Street and Highway Traffic Section. jlook with disfavor upon the program. Safety intended' to reach the masses in general, messages are all the more effective if they rather than certain classes specifically. By have utility value; for example, calendars, no means have I attempted to cover the book matches, and. other advertising novel entire gamut of ideas which can be used; ties which people will keep, rather than toss nor have 1 discussed the essentials of good aside. newspaper and radio measures. Back of any A general activity of safety consciousness can be brought about by having Boy Smuts distribute cards to erring pedestrians. The copy on these cards should be given the closest of attention either from the "reason why" approach or the "human interest" angles. Other copy themes can be com mon sense, loyalty to community', family idea is the proper method of convincing peo ple of certain facts, logically presented in the terminology , which they will accept. I refer to the proper wording of the copy and the use of display type that talks. Note how commercial advertising is so convincing because the idea is put across with as few well chosen words' as possible. - dependency, economic, understanding of Selective Education legal rights or legal aspects of violations resulting in accidents to pedestrians. When we thiuk'oflhe adult pedestrian problem, letytis 'hear.-in mind ihat the field "Point of need" safety is also the painted of education islnecessary in sections of the message on sidewalks or on the streets at city other' thafi congested business areas. intersections. Posters at intersections and in Accident spot .maps show that most pedes mid-block also serve to arouse safety con trians are. bang injured in residential dis sciousness. Pedestrian safety or warning tricts. If- the analysis discloses that the signs can be attached to poles throughout problem Is dhieflyone of engineering, then the business area. Sandwich board type of physical safeguards. for pedestrians should advertising signs on men mingling, with pe be planned for and installed. In those dis destrian traffic is also a good idea. Humor" tricts particularly public education will serve can be used advantageously by dressing one to acquaint the people of the proper uses of these men in a clown suit and having of those engineering facilities provided for him pantomime the walking habits of peo them. Selective education must be employed ple. A bell high np on a pole to be rung after the pedestrian accident analysis has /when a pedestrian jaywalks across the in localized the' district, actions, time of day, tersection will attract a great deal of atten and other factors which point to the trouble. tion. In the residential sections, the message most Street cars and buses can serve their be taken into the home. Community news patrons in a way of pedestrian education papers can editorialize on the actions of by having safety cards at the doors, to re pedestrians in specific districts after the mind people-that they should wait on the facts have been obtained from the traffic sidewalk after alighting. Inside car cards engineering department. He can invite the can point out the dangers of crossing in front or in hack of street cars or buses. On people to express their views on pedestrian safety and measures for. assuring greater the street car loading platforms safety' mes safety. Perhaps enforcement of speed regu sages can be placed, calling attention to lations is needed in those. districts. Com safe ways to leave the platform. Other plaints or requests for safeguards are not forms of safety messages which can be. all of the "crank" type, but serve as an in used in a street car. or bus advertisement are dication that safety is on the minds of the the outside dash signs. Street car snipes can people and they have the right to be heard be used on the windows. ...Printed leaflets can and the right. for .such measures. be inserted in the "TAKE ONE" holders Other selective media- for localized areas usually found inside.the cars. may be through community boards of trade, We have not: reached the stage as yet when safety' messages, broadcast by radio, will reach the passengers on their way to and from work and throughout the entire day. Perhaps that day won't be far off. women's clubs, churches, workers for social agencies in those pedestrian accident areas, posters in neighborhood stores, and leaflets inserted in packages purchased at the stores or delivered to the home. Still other means most be used in a general way, such as bill The media I have mentioned thus far is' boards on the sides of neighborhood stores; i $ 60 29th National Safety Congress or, safety posters on poles at points where two or more pedestrians have been injured during the past year. Getting a general safety message into homes can also be accomplished through the schools by having the teachers instruct the children as to the importance of the mes sage and die fact that the message must be taken home to the parents. Signatures of the parents could be obtained to assure their having read the message. Handbills can be used in a general plan of distribution to these homes. Home owners are more interested in pe destrian accident facts when they can be told how many people have been injured or tailed on their particular street or district We may take the lesson now in use in Wayne County, Michigan, by haring po lice officers (this 'could be done easily by fledgling officers) call upon each house holder in the rural regions. He should per sonalize his message. For example, he could obtain beforehand a directory listing of die residents on his streets (if this is done in a city) and, when the door is opened, he could address the woman as Mrs. Martin, and she would feel that the officer has a personal message to her; and he really does. After he has given his short speech, he can leave the leaflet, asking Mrs. Martin to dis cuss it with the members of her family that evening.. Educating adult pedestrians is a job which requires careful planning and execution;. In stilling safety consciousness into adults can be accomplished through a continuous pro gram of intensive activity of purposeful and selective education. Safety is a commodity today more vital to each individual than, perhaps, most commodities offered to the public for their consumption. Still, safety can and must be sold, and the public as a whole will buy safety because the premium is their.life. WEDNESDAY XOOX MEETING October 9.1940 / Luncheon-Business Meeting Presiding: Judge Harry H. Porter, General Chairman, Street and Highway Traffic Sec tion, National Safety Council. General Chairman Porter explained that reports of the six study committees were being made at the various sessions and would be omitted at this meeting. Adminis trative Committees would, however, report. George Warren was called upon to report for the National Committee on Traffic Law Enforcement, substituting for Arthur, T. Vanderbilt, Chairman. Mr. Warren is Spe cial Counsel for the committee. Chief Ray Ashworth of the San Antonio Police De partment moved that the general meeting confirm the endorsement of the report, which had been made at the Wednesday morning session. The motion was carried. Chairman Walter B. Martin of the An nual Congress Program Committee strongly urged that members of the section continue to cooperate with the incoming committee. .tTIic Committee on Traffic Accident Rcc'ords- has worked with the National Com mittee on Uniform Traffic Accident Statis tics and the form recommended by the SubCommittee on Forms is essentially the Standard. This report was made by Wilbur S. Smith, Chairman. The Committee rec ommended that plans for the preparation of . a manual on uses of accident records be advanced during the coming year. Chairman Roger L. Morrison of the Committee on Traffic Engineering reported that his committee has been established to promote closer association of traffic en gineers and others responsible for traffic planning. One session has been held and another will be, he said. It is desirable to make further studies of selective education. Chairman. Carl J. Rut- Street and Highway Traffic Section 61 .land stated in reporting for the Committee Safety," that the Street and Highway /on Public Education , and Safety Organiza- Traffic Section has made a substantial con* tion. tribution to the adjustment of rapidly Chairman Phillip B. Gilliam of the Com- changing traffic condition. Dr. McClintock mittee on Traffic Court Judges and Prose- said ctellenge of traffic afety has meant cutors reported that twice as many judges 311 who were interested when the sec- were attending this Congress as in former tion was organized in 1929 we still inter- vears jested and many who have become active * . tsince then participate in the affairs of the A report on the banquet for city and : section. He paid tribute. to the industrial state police, as wd! as the .group sessions ' members who foresaw the importance of lor them, was made by Chairman Matthew ; proniotihg traffic safety and were willing to Bolger of the Committee on City and State support it They were cognizant of the fact Police. ; that more than 50 per cent of the injuries Chairman Walter D. Ladd of the Xom- ; and deaths of persons engaged in industries mating Committee presented the slate of occur away from their work, he explained, officers for the coming year and officers were jn reviewing the work of the six study elected, as listed elsewhere in this record., committees, Dr. McClintock commended the Dr. Miller McClintock, Retiring Vice activities, saying it has brought together m- Prcsident for Public Safety', told the meet- formation and experiences that have helped ing. in his talk on. "Organized Traffic solve many traffic problems. WEDNESDAY AFTERNOON SESSION October 9,1940 General Session )Prl'siduuj: Judge Harry H. Porter. General Chairman, Street and Highway Traffic Sec tion, National Safely Council. Progress in Uniform Traffic Legislation By LOUIS R. MORONY Executive Director, American Association of Motor Vehicle Administrators, Washington, D.C. (Editorial Note: Mr. Morony spoke ex temporaneously. The following is a brief summary of his discussion.) "In contemplating legislative activity you .should first analyze the legislation you al ready have, the degree of success resulting from present, legislation, and then determine whether or not new or additional legislation is imperative," Mr. Morony emphasized' the fact that groups arc often tempted to agitate legis lation because they` feel that they should show, some activity- in that direction. He stressed the point that going to a legislature often was the last resort, and then he indicated the proper approach to bring about an acceptance of new legislation from the legislature. Mr. Morony stated: "motor vehicle legis lative advisory, committees, such as the one set up in California, are extremely help ful. They not only are in the position to make progress in a legislative program by assisting in bringing about the enactment of sound legislation, but they are equally help ful in preventing the enactment of obnoxious legislation." "The Uniform Code,". Mr. Morony {minted out, "should be kept in the background and tised .41S a model -and not something that might have a tendency' to confuse those 62 , 29th National Safety Congress not familiar with it because of its size, Offidals charged with the administration and enforcement of motor vehicle laws should have some latitude, discretion, and author- ity in adopting reasonable rules and regulations in order that their administration program, will move along with national trends." Report of Committee on Night Traffic Hazards By HARRY TUCKER Professor of Highway Engineering, North Carolina State College, Raleigh, N, C. and Chairman, Committee on Night Traffic Hazards, National Safety Council . The following are the facts and recom mendations for night traffic safety presented in the 1940 Report of the Committee on Night Traffic Hazards. The complete re port is available in a pamphlet from the Council's Traffic Engineering Bureau. The'report was prepared by the Com mittee on Night Traffic Hazards to give public officials and other interested citizens a condensed summary of die night traffic accident problem and recommended methods of prevention of night collisions. The Committee was organized in 1936 to study the many angles of the night traffic problem. With the cooperation of the Na tional Safety Council's Statistical Bureau, data have been collected from all sections of the country. The accident experience has been divided between urban and rural and between pedestrian and non-pedestrian acci dents. Special studies have been made re garding the intoxicated pedestrian and the intoxicated driver problem at night The effect of risibility on accidents has been investigated and numerous examples of accident records have been obtained- com paring the accident experience before and after changing risibility conditions. This in formation is included in the report Facts and Recommendations for Night Traffic Safety 1. Traffic hazards and. accident severity begin to increase at an alarming rate at sun down. The fatal accident rate per mile of travel is three times as high at night as during the day. These facts present a major problem for state, county and city officials whose duty it is to provide an effective pro gram for traffic safety at night as well as during the daytime. 2. From 1930 through 1939 daytime fatal accidents dropped 18 per cent but night fatal accidents increased 15 per cent An increase of 32 per cent in fatal rural night accidents accounted for the unfavorable trend. This points to the need for further study of the rural night accident problem. 3. Increased night travel on rural high ways, combined with higher potential speeds of vehicles^ has made night driving more hazardous under ordinary conditions. En gineering, education, legislation and enforce ment must be initiated to aid in solving the rural night accident problem. 4. The use of intoxicants is an important factor in night accidents. Statistics indicate that pedestrians and drivers who have been drinking are about five times as frequent in fatal night accidents as in those occurring in daytime.. Enforcement officials should remove intoxicated pedestrians, as well as drivers, from the hazards of traffic before they are injured or killed. 5. Lowered risibility seems to be the major difference in the hazards of night and day driving. It is necessary that drivers and pedestrians realize this and give more atten tion to their safety under these adverse con ditions. 6. Pedestrian accidents, primarily adults, constitute a'relatively high proportion of night accidents in urban areas. Half of the pedestrian deaths occur between 6 p.m. and midnight, while these six hours account for only one in three fatal non-pedestrian, acci dents. It appears that the pedestrian often takes for granted that he is bring seen by the motorist when he can see the headlights of the automobile. Thus he walks confi dently into the path of the motor vehicle unseen by the driver until it is too late to avoid an accident ; 7. Most traffic signs along the highways in rural areas, and some'Signs in cities, are even more important to motorists at night. than in he daytime. It Is necessary, there in \Z* Street and Highway Traffic Section 63 Jore, that they be seen at night well in ad-' pace of the hazard. To increase their visibility they should be illuminated or reflectorized. In some cases, conditions require that they be larger than standard signs which are satisfactory for daylight condi tions. . & Since vehicle headlights, are the main source of illumination for most highways, owners should maintain them in good condi tion for best visibility and comfort for themselves and other drivers.. Motorists should always use the proper headlight beam. The upper or country beam should be used on rural highways whenever there are no vehicles approaching within 1,000 feet (about two average city blocks). The lower or traffic beam should be used when approaching other drivers and when driving on wen-lighted highways or well-lighted city streets. 9. The maximum safe operating speeds-of vehicles at night are considerably lower than for daytime conditions because of decreased visibility- The Uniform Vehicle Code of the' National Conference on Street and High way Safety recognizes this in recommend ing a differential between day and night speed limits. Additional reductions are rec ommended for drivers at night wherever necessary to conform with the conditions Jbbnfronting them. 10. New drivers should be taught night driving techniques in their initial training after they have become acquainted with driving in daylight 11. Reflector buttons and reflector mark* en are definite aids in delineating curves and designating hazards on highways. Their use is recommended on the outside of curves, on approaches to bridges, culverts, **T" in tersections and oo entire sections of impor tant highways having numerous curves and other inherent hazards. 12. Striping of the center line and "No Passing Zones" is especially helpful to mo torists at night The painted lines often can be seen farther and easier, than the pavement edge. More highways should be marked in accordance with the latest standard prac tices. 13. Tpffifi\ safety^ lighting continues todemonstratqjts value for reducing certain types of acddoits. It appears to be particu larly effective 'in protecting pedestrians. A scientific analysis of night accidents should be' made by city and state authorities to de termine high night accident areas. When these have been located, their conditions should be studied to see whether physical changes in the street or highway are neces sary and whether there is adequate lighting for traffic safety. . 14. Scientific street lighting should be provided at least in those places where studies of-accident records, and spot maps show its need. Wherever proper street lighting might eliminate certain types of'vTjr night accidents such improvements should - be considered. Where such a condition can i be anticipated in new design and construe-'---^ tion and when a light colored pavement is reconstructed with a darker surface; the lighting should be studied to see if it is ade quate. Wherever new lighting is installed, it should be designed to provide adequate visibility for traffic. . 15. Additional accident records before and after .the installation or improvement of street and highway lighting are desirable for revealing further the types of accident pat terns which yield most readily and consis tently to lighting. .Such data wdyld aid city and state officials in treating existing night accident problems and forestalling similar.-- ones in new construction.- 16. Research on automobile headlamps should be continued to obtain the maximum amount of safety from them. THURSDAY AFTERNOON SESSION October 10,1940 Group Session of City and State Police Presiding: Inspector E. Jack Erwin, Traffic Division, Police Department, Toledo, O. .$ 64 29th National Safety Congress Debate: Resolved That Pedestrians Are More Responsible for Pedestrian Accidents Than Are Motor Car Drivers ASrmative--DAVE SHERMAN Department of State, Lansing, Michigan When you hear that 32,000 persons are killed, and a million injured in motor acci dents annually, do not visualize merely the mile-a-minnte driver of a car sideswiping a truck, but think equally of the citizen on foot Traffic surveys show that pedestrians are often actually to blame for their own deaths or injuries. The motor vehide operator, in most states, is required to be licensed, to have funda mental knowledge of motor vehide laws such as speed and traffic regulations, and of the things he must do under certain conditions. He must prove himself phys ically capable of operating a vehide; must have proper eyesight, and a good mental coordination, which he must prove through written tests and actual demonstrations. He is then subject to restrictions on the highway; traffic lights, one-way streets, safety zones, parking rules, speed zones and numerous other safeguards. As a result the motor vehide operator has been brought well under control. But what of the pedestrian? You have seen him crossing streets diagonally, walking with his back to traffic and stepping from behind parked cars. A national survey re' veals that even where there are traffic lights in dties, three out of four pedestrians fail to obey the lights, while 98 per cent of the motorists obey them to the letter. Actually three out of five of the pedestri ans lolled last year were crossing between intersections, and most of them were just three or four feet from the curb, indicating that they had stepped in the path of the approaching car without stopping to look or listen. They must come to realize that in failing to obey the ordinary traffic rules they are courting sudden death. During the World War thousands of those examined for service were found to be color-ignorant Not having studied , or been taught colors they could not name them. My opinion is that the average pedestrian is car-ignorant He does not know the speed at which a car operates, nor the dis tance it covers in a split second. Pedestrians are ignorant, of, the rights of motorists. They haven't heen taught traffic rules. Yet they can-.be taught, and as they become car-con^dous, there-will be a noticeable reduction in our fatalities. You may ask me: "Can pedestrians be controlled?" We know that they can! Who would have believed that the recent tre mendous reduction and present steady de crease in child fatalities could be accom plished through educating children? Yet, we find, as a- result of school safety patrols, and safety education in the schools, child fatalities per year have been reduced 10 per cent If- this can be done with children it can and must be done with adults. Properly marked intersections must be provided to discourage crossing elsewhere. Side-walk signs "cross-here"; traffic light with signals for pedestrians as well as those for motorists; full publicity--every medium that can be used to make people safety conscious, and, above all, stringent regula tions regarding jay-walking must be em ployed. The use of educational features and an impartial enforcement of all traffic laws will result in making people addition ally safety conscious. Dr. Gallup, in his recent poll of the en tire nation, revealed that 90 per cent of those interviewed were in favor of regulating pedestrian traffic If the people want it, we are remiss In not taking some steps to in sure such regulation. Is it lack of legislation? The weakness of our Judges imposing penalties'? The weak-' ness of our legislators? Is it the weakness of our enforcement agents? It may not be, but the time has arrived when drastic and determined steps most be taken. What-happens where pedestrians are con trolled? Tuscon, Atlanta;.-and Dallas, are some of the 65 dties that endeavor to regu late pedestrians. What do their records show? It was found that- the number of Mexicans lulled in Dallas was twice that of any other nationality. By means of signs in their own language, simple and easy to understand, and by enfordng the traffic rules & cans the havt pass high sign taqg obey that in hi A: own phili stro help the who tresi '.the G mill been desii hicu pitif for of t ypt fun< light are; R Of: X 30,01 tend maji latic to t legit I ------------------------------------------------------------------------------------------------------------------------------ . Street and Highway Traffic Section 65 ( "|o the letter. Mexican Natalities were cut- ' 58 per cent in one year. What would that mean, gentlemeiyif these rides were en- forced on a nation-unde basis ? Instead of 12,600 pedestrian deaths there would be less than , ,6 000 not as a result of regulating motorists, but of requiring pedestrians to obserye ordinary rules of safely. I would suggest a pedestrian control ... week, observed simultaneously in every state sponsored by the American Association of Motor Vehicle Administrator in cooperation with the press, radio, American Legion, and other groups. You would have a local group as a nucleus so actively interested that, with your enforcement program, the campaign could not faiL Such a reduction in pedestrian deaths would result that the nation would be astounded. Negative--CARL JENKINS / Department of State, Lansing, Michigan Everything which has been done in the that the administrators and legislators are cause of highway safety has been done from the persons who must correct this situation. the viewpoint of the motorist Engineers I propose,--therefore* to bring certain spe have provided him with underpasses, over cific charges against the motorist* and to passes, divided roadways* center lines on suggest a program, which if adopted, will, highways, highway .lighting and efficient in my opinion, bring about a radical re signs and signals. The motorist has been duction in the pedestrian accident rate. taught to make use of'tfaese devices, and to obey the regulations, always with the idea I charge yon, Mr. Motorist, with con that such use and such obedience will result sistent; and habitual violation of the speed, in his safety. laws, despite the fact that speed too fast As a pedestrian I have been left to my for local conditions is a leading cause of own devices, and forced to devise the simple accidents. I charge that it is. common prac philosophy that it is up to me to cross tice to overdrive your headlights, and that streets and highways as best I can.. To it is ordinary for you to drive without that help in my efforts I have had nothing hut due regard for the rights and safety of 4he abuse and scorn of the motorist upon others, which is a provision of all of our whose sacred domain I have presumed to traffic laws. I charge too that it is your trespass. In short, I must consider myself custom to violate the right of way granted ... '-the forgotten man of this mechanical age to pedestrians, and that you ordinarily Consider if yon will for a moment, the, millions upon millions of dollars which have been spent for the construction of highways designed purely for: the purpose of ve hicular traffic, and contrast with this the pitifully small amount which has been used . operate your motor vehicle paying little at tention to children at play on the streets. I charge; in . short, that yonr attitude is, that you- are monarch'of all you survey, and nothing can be permitted to interfere with yonr triumphal progress. for pedestrian facilities. Consider the scope of the highway lighting program, and plaice . against this the,, meager amount of public funds which has been devoted to the Baring made these charges -Against the motorist, I propose that we present to this arrogant individual a bill of rights^for the pedestrian. .Experience 'has shtfwi ithakan lighting of intersections where pedestrians unpopular law caumot -hfe enfojrbed^and I are required to cross. suggest, therefore, that they have been pro Remember too that we are a democracy vided for the motorist I recommend the of nearly 140,000,000 people, and that only. liberal use of the "pedestrian walk" signal 30,000,000 people own motor cars. I. con- , which is so easily incorporated in any tend that, in a democracy, the rights of the! traffic signal system. I recommend also the . majority are paramount, and that any legis . adequate illumination of all pedestrian cross lation which tends to benefit the minority ings, and the strict enforcement of parking to the demount of the majority is class, regulations, particularly 'one requiring that legislation and cannot be tolerated. parked' vehide be not less than 25 feet I agree with my opponent's contention from an intersection. 66 29th Xajifeual Safety Congress Having provided these facilities, ommend that you carry on. for a/Timiied period of time and educational campaign for the purpose of teaching the pedestrian to make use of them. After such cam paign, it wiH be in order to undertake enforcement of the pedestrian .regulations, and I assure you that, if facilities are pro vided, and educational steps taken, any at tempt at enforcement will be met with hearty cooperation on the part of pedestri ans. Second Affirmative--jdHHVOVrEN . Department of State, pausing, Michigan You, the pedestrian, have been called at once the "forgotten man" and the problem child of street and highway safety'. Nobody loves you, because nobody wants to assume responsibility for you. ^ At least two thirds of your dead were adults, fit subjects for statutory regula tion. That would seem to pull you out of the problem child category. It is highly significant, too, that your mortality rate first started to'climb at the same time that the delivered horsepower and potential speed of the medium priced auto mobile showed a marked upward trend. You failed to adapt yourself to a changing world by the cultivation of added safetyhabits. For your walking habits, you alone are responsible. You claim you are careful. Some enforcement authorities say you are incorrigible. Well, five of the larger cities have undertaken to test your vaunted care fulness: Milwaukee, Dallas, Cleveland, Providence and Kansas City. And as a re sult. in those cities, where enforcement activity was directed against you sis well as against the automobile driver, 45 per cent were saved from self-destruction in one year. The Gallup poll says that you want to be ^regulated. An increasing number of im portant cities is commencing to believe it, and--in one form or another--they are granting your own wish. Those cities are: Chicago, Los Angeles, San Francisco, Bir mingham, Minneapolis, Rochester; Hart ford, Wichita, Atlanta. Results in all those cities have' been most gratifying, and human' lives have been saved in consequence. As a result of this pioneering experience, we now know a number of things about you, Mr. Pedestrian, that we hitherto only suspected. We know that in all urban areas, three out of five of your dead brethren crossed in the middle'pf the block. Seattle has found out that you do not like to wait for the'green light longer than 18 seconds; but you will, if you know that you must. ..Denver has learned that you do not blow up when you are fined for jaywalking .after you have been knocked down by .ah auto mobile; instead you pay up. .,/ Connecticut and Washington. D. Q-.; have proved that about 90 per cent of you who iwcome mortality statistics never did appre ciate the driver's point of view. They had never had driver's licenses. Now- that hardly seems fair,' Mr. Pedestrian. The motorist appreciates your point of view, because he, too, is at times a pedestrian. You will say, perhaps, that statutory regulation of your walking activities will only serve further to curtail your liberties in a world where the frontiers of liberty are already tautly :circumscribed. But changing conditions make imperative new* technics and new controls. Whether you like it or not, whether I like it or not, that way of life that the sociologist calls the inductive culture is now definitely on the up-grade; its spread is inevitable. And with its spread, there must come even to America a wider spread of police powers than the American people have heretofore ever known. That is not to say that we, as a nation, are headed towards regimenta tion. Any measure that is for the conserva tion of human life is not regimentation, it is humanitarianism. Street and Highway Traffic Section 67 Second Negative--STEVE WHITE Department of State, Lansing, Michigan The question of the responsibility for dents last year in the United States. I qiiotc l>edestrian accidents lies very definitely with from the statistics of the Nationat Safety the motor car driver. Our opponents of the Council which show that there were 5,700,- affirmative side have attempted to prove 000 motor vehicle accidents in the United otherwise by the submission of some sta States last year; pedestrians were involved tistics gathered from a few cities through in only 270,000. In other words, the pe out the country where experiments...have destrian was able to escape this careless, recently been made in rigid, pedestriaii en `thoughtless," uncontrolled driver of 95 per forcement. cent of the accidents that drivers had.' li Contrary to what our opponents would have you believe--the people of this great nation do not stalk the public streets and highways 24 hours a day, seeking to hurl themselves beneath the wheels of some un suspecting motorist We arc all pedestrians by nature. In times of danger we can stop instantly; we is a tribute-4rthe alertness and. skill of the pedestriaS^ huf jit shows that .what might be just another accident between two driv ers, with only slight property damage, is usually fatal when the pedestrian is in volved. Surely we need no better proof than this as to where any accident-proneness lies; can reverse from a forward motion; we can In the majority of cases, accident sta- turn sharply without up-setting; we can tistics arc obtained from the compulsory jump, side-step and side-slip; we have ma ' reporting of accidents by drivers. These neuverability that nb.7 man-made machine driver reports, in most cases, give the cause can ever attain. Yet this maneuverability, of the accident from the driver's point of marvelous as it is, has beep itnhble to cope view, but the pedestrian gets no opportunity with the devastating speed and crushing to state his views. . However, taking these weight of the Juggernaut- of tfitPpublic accident reports as they stand, and without ways--the motor vehicle. / giving the pedestrian a hearing in most of \ i Our opponents have quoted some sta- them,, we find--and I again quote the figures / tistics on the experience of cities where of the National Safety Council--that nearly rigid pedestrian control has been tried. Wc one-fourth of the pedestrian deaths in the admit that the results show a remarkable nation last year involved pedestrians who decrease in pedestrian fatalities, but we- were doing exactly what our opponents ' maintain that is not the whole story. This claim they do not--crossing properly- at same rigid pedestrian control pre-supposes intersections. Many pedestrians were struck a rigid control of drivers and we cannot ..-down as they waited or stood on the sidc- have a rigid control of drivers 'until wc ' walk. impress upon them that the pedestrian also lias .a legal right to the public road, and that we intend to enforce the granting of the-right of way: to pedestrians when they arc using the public road in a legal man ner. Why did not our opponents tell you of the hours of the day during which, the majority of pedestrian deaths occur? Because they know that this would be a further indict ment of the motorist I will tell you that 52 per cent of the pedestrian deaths oc \Ve have also heard from our opponents curred between 6:00 P. M. and 12 mid tliat pedestrians account for about 40 per night--the dark hours. And despite the fact cent of the nation's traffic fatalities. While that there are far fewer pedestrians on the .the statement-in itself is correct, it is, at public highways during these hours than in the same time, highly misleading and sub daytime--drivers took a little more than half ject to misinterpretation. From that state their toll during this time. The reason for ment it would seem that pedestrians were this high frequency after dark is found in involved in almost half of the nation's traf the experience of New Jersey during the fic accidents. On the contrary--and this is first year of the compulsory inspection law. the. most damning evidence of all against Almost one-half of the. registered vehicles the driver--pedestrians were involved in only of the state were rejected on the first in 5 per cent of the total motor vehicle acci spection because of mechanical defects, and es 29th National Safety Congress 50 per cent of these defects consisted of a pedestrian walked from behind it, he is faulty headlights. charged with attempted suicide, and the Both of our opponents have mentioned driver of the illegally, parked-car does not in glowing terms the recent poll conducted enter the picture. by the American Institute of Public Opinion. Our opponents demand to know what the The result is further proof of how rational pedestrian knows about stopping distances the pedestrian is. The typical answer given and tite physical laws of motion. I demand by the average pedestrian was *T am against to know what the average driver knows jay-walking. I suppose I do it myself, but about stopping distances. By far, the great if there were strict laws against it. I'd be a majority of drivers arrested for speeding, tot more carefuL" But tins very rational frankly admit, ignorance of their speed. attitude on the part of -the pedestrian pre They were not looking at the speedometer! supposes a rigid control of the driver, and Despite the toct that tite driver with a uw until the driver is brought under control, few drinks is more of a menace on the a rigid pedestrian law will be unenforceable. road than is the inebriated driver, in many We have heard of the pedestrian who steps from behind a parked car and is struck. With our parking rules adhered to more in the breach than-in the observance-- the vehicle from behind which the pe cases, in order to get a conviction for drunken driving; it is necessary to prove that the defendant was unable to stand on his feet Ability to stand unsupported some times seems proof of competence. destrian walked has many times been parked These facts that I have presented can on the wrong side, of the street, or doable lead to only one conclusion! That tite parked, or quite possibly -parked in a way motorist is responsible for the vast ma that obstructed a crosswalk. Yet, because jority of pedestrian accidents! Practical Pedestrian Enforcement in States li By CAPTAIN T. N. BOATE Chief, Traffic Division, Pennsylvania Motor Police, Harrisburg, Penn. It should be understood at the outset that With this kind of a background the fac "enforcement" does not necessarily mean ar tors comprising our problem seem to be: rest and punishment for some violation' of 1. Rapid increase of trade and automobile the law. The more sensible interpretation of traffic by the millions. this term, especially as applied to the pedes trian and his' relation to the moving vehicle, is that of obedience to requirements requisite to the adequate protection of the person travelling afoot 2. Increased, speed of motor vehicles in both urban and rural areas. 3. Gradual acclimation of the pedestrian to the automobile which, in addition to a natural.resentment of this encroachment on Solution of this overwhelming problem by his rights, is slowly resulting in a careless pedestrian enforcement which may be classed . disregard of the potential danger of expo-. as, direct- police action against an offender, sure to motor traffic. education in all of its ramifications, and For relief from the devastating conse highway construction and design, has been quences resulting, from this condition the "blocked by age-old principles involving tite police are looked to for a major role.' Are psychological factor of "right of way." It police forces generally prepared to meet this is argued that people travelled on foot over problem? Have they met the prevailing highways as a matter of right long before conditions, as the principal agency for pro the advent of the automobile. Travel by this tection of the public, squarely? Arid, fi means is still both necessary, and desirable. nally, have they done k)fnethlng about it that Consequently, there is a natural inclination has produced results? /The record speaks by the pedestrian to move about entirely free for itself. While'tboe have, been great and of restraint, resenting and disobeying, other productive efforts put forth, by police forces willfully or as a matter of indifference, all throughout the nation, frankly,- there is an rules of conduct promulgated for his safety. abundance of room for improvement So, Street and Highway Traffic Section 69 \ in this brief. discussion, let ns look to our may be interested in what the other fellow S weaknesses and see what can be done for is doing but they are. more particularly con improvement cerned with their-own problems. It has been my observation that police' forces in the role , of street .and highway traffic regulators lack coordination. Further, there is a marked tendency to seek the shel ter of com^urisou hy pipinting the finger at other ntnnidpolities'With records as bad, or wbpse, than year own. Battles have never been won by finding excuses for reverses, or, as we have heard so often lately, retreating to prepared positions. These things only tend to complicate the issue. Let us face with resolution the problem existing in each of our jurisdictions and insist upon the state taking the initiative by properly preparing and malting available a sound phut of action which, when tried and proven, shall .hot be deviated from, excepting for improvement gleaned from experience, until our objective of proper pedestrian regulation has been achieved. A Cooperative Plan Coordination, of; State and City PoliceForces. In thew iblntion of the pedestrian, problem, coordination of all police forces is an absolute prerequisite to success. This es sential cooperative effort is not, however, al ways immediately forthcoming. Under such conditions, success is sometimes obtained by- enlisting the aid of motor clubs and otherorganizations interested in highway safety, to prevail upon local authorities to cooperate by providing increased concentration on pe distrian protection and general traffic law- enforcement . / Selective Patrol. To utilize accident in formation fully as a basis forhighway patrol activity, it is necessary to study carefully the accident experience on. any given high way and first arrive at the number of hours of daily coverage required to provide what may be termed "ideal police coverage." This having been done, assignment of officers to My conception of such a plan revolves cover such highway by patrol in four or around cooperative efforts and sound basic right hour shifts as a permanent detail will planning in which every city and state will bring tiie most satisfactory results. Under immediately undertake a comprehensive pro this system responsibility for proper polic gram of pedestrian accident prevention. With ing' of sections of highway found to have a the motor vehicle accident fatality experi- high accident density may be delegated to ence bring 50 per cent and upwards pedes- particular officers.' Since it is plain that } trian, the highway safety program must be such officers have been given the responsi largely centered.around this all important: bility of' accident prevention on their patrol, . factor. We are told that; in general, the pe they will put forth their best efforts. This is destrian problem is more acute in cities than in rural areas. This, however, by no means -lessens the responsibility of the state police force to maintain an adequate plan for pe destrian protection and control. A long range statewide program should include: Leadership. , The state police should as sume this initiative by advocating a more comprehensive pedestrian protective pro gram. better than the common practice of assign ing an officer to a different patrol each day. Selective Enforcement. In general, the rural pedestrian problem involves four prin-. tipal conditions : The intoxicated pedestrian; the pedestrian who walks with traffic; thepedestriad walking along highways during hoars of darkness without a light and wear ing dark clothing; and school children walk ing, along the. highway while en route to and Statistics. Derise and maintain a system from schools. -The rural police officer may of gathering accident case history quickly. afford proper protection for such pedestrians Information designated to form the basis'for by taking into custody persons found.to be- police action, as in all other lines of activity, walking along highways while intoxicated most, be not only accurate bnt fresh. The and to detain them until sober in the interest remedy indicated by analysis of statistical of their own safety, to urge all persons- to data must be-applied quickly to be effective. walk toward traffic when walking along a Accident Analysis. Make a thorough public highway, to educate pedestrians walk analysis of all motor vehicle accident fatali- ing on highways during hours of darkness ' ties and distribute such information to. police and to he present in the vicinity of schools forces throughout the state. Such an analy during hours when children are enroute to sis should completely localize the informa and from their homes. In this connection itr tion made available Local police officials ' wonld not seem for amiss for the police offi 70 29th National Safety Congress cer to visit homes on patrol and drop in on Publicity. On the theory that Uie acci school assemblies for the purpose of point dent problem is essentially a local one, it is ing out, specifically, existing hazards in the believed that studies made of traffic condi immediate neighborhood and to discuss tions for the purpose of effecting a reduc those tilings which are important for pedes tion in the accident density should also be trians to know. dealt with as a local problem in making Legislation. To give proper effect to"the above matters of enforcement it is con sidered advisable to obtain legislation pro hibiting the walking on or along highways by persons under the influence of-intoxi cating liquors. This condition may, of course, be proceeded against without specific author ity in the vehicle code. It is believed, how ever, that the mere fact such a prohibition is contained in the traffic laws curtailment would be effective, to some extent at least, without enforcement. Likewise the manner of walking on highways and other require ments for pedestrians should also be spe news releases. Studies of this nature con fined to county areas have proved to be of wide public interest and readily accepted by local newspapers. When a traffic officer is assigned to stud}* conditions in any particu lar area the purpose of such study should be immediately publicized, as well as the results and recommendations. This will make the public aware of the hazards on highways in the immediate vidnity of their residences and should have much to do with bringing about increased caution when driving on highways found to be unusually hazardous. cifically covered by traffic laws if definite action is expected to be obtained uniformly throughout the state. Legislation of this nature is often objected to on grounds of regimentation, arguments being advanced that pedestrians should be given precedence over vehicular traffic and that their ancient right of free movement should not be .inter fered with. This feeling on the part of some people is well illustrated by the age group accident fatality record from which we find that the pedestrian over HO years of age is. frequently the victim of motor vehicle acci dents. Titus, states which have not already done >o will unquestionably on this basi eventually adopt legislation along these lines and it is believed that the sooner this is ef fected the more quickly our program for pedestrians will reach a state where a sub stantial decrease in the death toll will be reached. Accident Facts. The police cannot effec tively participate in a highway accident pre vention program unless they have complete information on the current experience from which the "how, when, where and why" of accidents that are happening may be deter mined. In this respect monthly or yearly re ports of accident concentration arc helpful in the control of highway patrol coverage and formulation of selective enforcement policies if such information is reasonably well localized or restricted to areas covered by police substations. This is true because accident experience of this nature, embrac ing as it docs some semblances of regularity, traffic control and regulations may lie planned in advance by the police to meet such conditions. On the other hand, to com bat effectively changmu conditions of a hazardous nature, detailed information im mediately available is absolutely necessary as Engineering. We have found that the a prerequisite to applying the proper remedy police can effectively co-operate with the in time to prevent the development of a con traffic engineering division of the depart dition, which has already resulted in one or ment of highways by being constantly on the two fatalities, -from becoming a major dis alert and making available the result of stud aster. ies of highway conditions and bringing'about the erection of warning signs, designation of The need for a rapid and more complete pedestrian crosswalks and illumination of reporting of. accidents - has been met ami sections of highways having a high pedes solved by some police forces, through the trian traffic density and where otherwise medium of a. system of reporting within the found to be most needed. In this respect it police force. This embraces a semi-weeklv is believed that states which include in their or weekly check-up on key sources of infor uniform sign system a sign directing pedes mation to obtain essential accident informa trians to walk against traffic have effec tion for immediate transmittal to a central tively controlled this phase of pedestrian collecting agency: Here the accidents arc regulation on rural highways. analyzed by a staff of experienced officers. Street and Higtizvay Traffic Section 71 j who, in addition to being qualified to fully 7 utilize information furnished, have access to all available information on existing con ditions. They are, therefore^ in a position to pass on the relative importance of data re ceived. The success of this system rests with the ability of the police force to obtain all of the information available on accidents by frequent contact with every possible source of information, such as police forces, sher iffs,. coroners, agencies for gathering vital statistics, states' attorney's and newspapers. This form of procedure, even if confined to a study of accident fatalities only, places the state in a position to report on accident fatalities quickly and accurately. We know this has. not'-always been true in the past. It also provides a means for prevention of accidents by: Better police coverage of dan ger spots, which cannot be anticipated by a study of accident trends, but which dan now be met because of the speed and complete ness with, which accident information is fur nished, and increased educational value of publicity on accident facts. Practical Pedestrian Enforcement in Cities By INSPECTOR B. R. CALDWELL v.**v ' Administrative Division, Los Angeleh Police Department, Los Angeles, Cal. . ' *> e ' Discussion of this subject seems to fall printed. Amusing cartoons were published ..into two parts: What we have in the way of the unsafe practices and the personalities ' of pedestrian enforcement, and what we involved. Thus the public was shamed, ca skpnld have, as determined in part from a joled and jollied into reception of a restric freQent survey' made of our "walking dead." tion which might very easily have caused ' -Wc have, in Los Angeles, a paradoxical, situation. It is alleged on the one hand, that we enjoy a reputation for pedestrian traffic law observance- Yet, an-outlandish and in- rebellion. There was almost immediate and universal compliance with the new regula tion. A Bad Experience \ excusable number of walkers are killed each . A neighboring city , recently attempted to / year--with little abatement in sight. A brief enforce a jaywalking^.ordinance which had history of two main factors in this observ been in existence since 1926. No warning ance may explain the paradox. One factor was given and no preparation was made. is the pedestrian obedience of regulatory The unfortunate officials of that city soon devices. The other is the observance by had a "sit-down" strike on their hands! motorists of the pedestrians' midhlork cross Pedestrians at in the middle of the streets walk privileges, in our central traffic dis and defied motorists and officers to do any trict. . thing about it! Those cited gave fictitious As long ago as 1921, an ordinance became names and addresses, and police efforts came effective requiring traffic signal observance to naught by the pedestrian. Los Angeles did not In Los Angeles, however, after the first make the mistake of attempting immediate success, the full effect of the new measures application of such a provision without was guaranteed by constant vigilance some preparation. A thorough painstaking coupled with enforcement Intersection offi publicity campaign was conducted. A strong cers are frequently reminded of this phase appeal was made to public sportsmanship, of traffic control. Now, when a pedestrian together with reference, to possible ridicule. proceeds across an intersection against the Every human factor was given considera signal, lie meets with-a shriek from a police tion. Then, when the effective date for the whistle; a warning signal from the officer: legislation came, the publicity, was intensi scowls and horn blasts from the motorists fied. Offenders found their pictures in the and surprised stares from other pedestrians. morning papers depicting them in some un One result has been that during 1939, it graceful er dangerous situation: some was found necessary to arrest but 73 per classic examples of Idiotic facial expres sons for such violations. Those arrests were sions, ridiculous, absurd and undignified for the most part by citations. It is sincerely postures, and stupid walking habits were believed that enforcement of this kind is 72 29th National Safety Congress doomed to instant failure in the absence of - adult victims did not Almost 100 per cent carefully laid plans for developing a favor of those killed were feeble, and dressed in able public opinion or sentiment or consen the darkest clothing.. sus. The public must be led gradually to accept the enforcement and the reasons for that enforcement must be made readily ap parent The second factor, in pedestrian control in Los Angeles exists principally in the central traffic district The blocks of the north and south streets running through this district measure about 660 feet long. It was deemed unreasonable to expect the walker to proceed to the intersection from midblock, whenever he wished to cross the street Recognizing a human factor, mid block crosswalks were established and pub licity was directed chiefly to the motorist respecting his duties at such locations. The walkers were not ignored, however. An appeal was made to them not to arbitrarily In another area having a bad experience, we found many of those struck were drunk and had emanated from bars in the vicinity. Action, taken under the alcohol beverage control act against the bartenders as well as against the drunken pedestrian, was found unusually effective. Another excellent plan consisted of mail ing a safety card.to all those receiving aged aid assistance. Sixty-five thousand such ap peals were mailed, all to persons 65 years of age and over. A weekly radio program is conducted in the manner of an open forum whereby lis tener participation is encouraged. A consid erable portion is utilized in discussing the pedestrian problem. f monopolize this new convenience at the ex A new appreciation of traffic in relation pense of the drivers. It is at present re to police work is taught to our "In-Service" freshing to observe motorists almost un training classes in which two per cent of the failingly stop to permit those on foot to sworn personnel attends weekly. Results cross. So it is that during the time when here have been more than satisfactory. police officers were guarding the downtown Where there is no carry-over or officer intersections, we find that the death rate was guidance, or where there is a prevalence of negligible. But let us look briefly at' the signal disobedience, an old but effective de other side of our paradox. vice is used. A roving four-man squad of During 1939, about three out of five (58.6 foot officers patrols key intersections issuing per cent) of our traffic fatalities were pedes citations and warnings and discouraging un trians, following a national trend. Of those safe habits of both the pedestrian ..and the 286 walkers, we found that almost a third driver. were lolled within a two and one-half mile radius of Seventh and Broadway, the ac cepted center of the principal traffic district This area comprised less than 20. square, miles, about 4 per cent of the total area of Los Angeles! Yet, this same area in this imaginary two and one-half mile circle em braces the greatest concentration of signal control devices and foot traffic officers in the whole community. Most of the deaths occurred, however, after dark when the Some years ago, and tip to last year, a mobile sound car patrolled those areas with poor pedestrian observance, calling atten tion of all within hearing to some vio lator. Weekly releases of safety suggestions, tips, and relevant traffic statistics are made to some 300 newspapers and radio editors throughout the cotmty. "What We Should Have" officers were no longer on duty and many of Now as to what we should have in the the signal systems had bam shut down. way of pedestrian enforcement At the out-' To go on with some of the devices em set I suspect we must all confess that we ployed to reduce pedestrian hazards. One have been "shooting in the dark!' in this hundred and ten pedestrian tunnels have matter. We tell each other it is serious, wag been constructed in the past few years, yet our heads ominously and proceed to "pass on one street with a particularly'bad auto the buck." It strikes me that we need to pedestrian experience, it was found that the know a great deal more about our pedes tunnel was not used. The location was at trian and Ins habits than we now know. We the crest of a curved, paved double hill near have already amassed a great fund of in a grade school. The youngsters were sur formation about the driver, but little has viving because they used the tunnel. The been discovered about the pian^on foot A begi in L N few stre sor ave bcf< on fed sen the den furl abo alb aspl the av was 96 me< of neij fan nea at i In ad the the > tor enf int< sig wa Mo nei sec wa. did hei m ing dri see sat wa ' fin tilt aw ant a1 ah Street and Highway Traffic Section 73 ^beginning in this direction has been made to indicate that it is not speed alone which "in Los Angeles. is lolling our pedestrians. Furthermore, it National records indicate that the first few steps taken by the .pedestrian into, the street are the most dangerous, yet our recent survey indicates that he had reached an would not seem altogether feasible to use numerous officers for speed enforcement in this area where speed was not so great a factor. average of better than 23 feet from the curb Examination of the reports shows that before being struck down. This occurred violation of the pedestrian right of way is. on a street frith an average width of 565 , most often the principal factor. This jibes feet This makes. us wonder about self- very closely with the study of the points of serving reports by drivers to the effect that impact which showed that the pedestrian the victim loomed np in front of them sud was, in three out of five cases, in or near denly from behind a parked car ! We found the center of the street With this thought further that we had a composite pedestrian in mind, a^efaeck was made of citation ex about 52 years of age crossing or walking perience. It was found, as is so often the after dark on a composite, street paved with case, that most of the enforcement was for asphaltic cement or asphalt in 87 per cent of driving through stop signs, running stop the cases; the land of pavement which has signals, and speed. Running through a a very low light reflection factor; lighting boulevard stop, f<fr example, was respon was uniformly poor after dark. He was, in sible for a very small percentage of colli 96 per cent of the cases, wearing dark er sions In 1939. Compared with the number of medium dark clothing. La a large proportion convictions for such a violation we - found of the cases, he was killed in his own a ridiculous enforcement index. neighborhood, where he should have been familiar with all the potential hazards. In Driver Responsibility nearly three out of five cases, he was struck at an intersection, and in a business district In but 87 per cent of the. cases did he have a driver's license. In 97 per cent of the cases the weather was dear. In 74 per cent of \ the cases he was struck after dark. I recommend that more attention be given the matter of yielding the right of way to pedestrians. We found that our officers write an average of 40 citations per week for such violations, whereas a decent index would indicate the necessity for at least With these and many other suspected fac 200 or 300 per week. 1 contend that simply tors in mind what might we coodude as to to raise the over-all enforcement index enforcement possibilities in the future? without regard -for the fatal violation is The average Los Angdes shopper comes into the central traffic district and obeys signals and motorists yidd the right of way to him when he wishes to cross in mid block. The same shopper returns to his own neighborhood and proceeds across an inter evading the. issue and onr responsibility. After all, we must admit that the pedestrian does lack that essential judgment of approach speeds; he very often has not had much or any driving experience; he is not familiar with driver problems and limitations; he section with the assurance that his right of way will be yielded by the motorists. They does not compensate for his own'limitations. Therefore, it is .up to us to afford him some - did so when he was downtown--why not measure of safety by more stringently con here? trolling the drivers at those fatal points in dicated. There is a carry-over of this understand ing and action into the outlying areas. The. . Next, high collision frequency after dark driver, when approaching an intersection shows the need for more men at that time. seems to expect to be allowed a free pas Many traffic officers at present assigned dur sage. Having seen pedestrians use cross ing the day to intersections and to the en walks in other areas, he does not expect to forcement of parking regulations could be find a waiter suddenly m front of him in reassigned to four-man roving patrols to die middle of the block. A recent check.of .. attend to the hazardous left-turn move average speeds in the above-mentioned two ments, failure to give band signals, mid and one-half mile area shows that there'is right of way violations. a variation of from 135 miles per hour to A third recommendation would be more about 22 miles per bonr. This would seem extensive use of mobile sound units to aid 74 29th National Safety Congress the above-mentioned foot patrols at strate gic points. A fourth recommendation would be to utilize more fully the possibilities of reg ular radio , car patrols. They could be as signed to patrol, in fuli view, those streets carrying heavy traffic during peak hours. A fifth recommendation would be to pub lish and distribute a well designed pamphlet to every resident in each geographical area, calling attention to pedestrian hazards and driver responsibilities. These could be dis tributed by the radio car officers between calls over a period of weeks, or by service groups from high schools located in the above areas. A sixth device would be a rather longview program involving adequate street lighting. This of course is not a police prob lem, but by directing significant informa tion into the proper channels, departments can do much toward ameliorating our high way "blackouts." Much money is. spent to make roads' smooth and to remove many hazards, due to curves, but a mere pittance is expended to enable highway users to see a clear way ahead. Much of the former ob jection to expensive lighting installations has come because the major part of the costs would accrue to property fronting the high ways so affected. 'Studie^show, however, that car-mileage on these fatal streets is extremely high, and that the users are not necessarily indigenous to the district Where such installations have been .made in Lbs Angeles, there was a drop in collisions of 78 per cent, and a 92 per cent drop in fatal ities. A seventh recommendation relates to fingerprinting and licensing of. pedestrians as a device to make them more aware of their responsibilities, and to make enforce ment more effective. Harking hack to the unfortunate experience of the neighboring city in their pedestrian program, such a plan would preclude giving fictitious names, and would serve many other enforcement pur poses. The eighth recommendation is to en courage more detailed analysis of our pe destrian experience. We should know more about where.- the pedestrian came from. What land of traffic regulation training did he have prior to being struck?. Did he come from a small town or large metro politan city? It might-even be significant to discover his work and play habits; iits physical agility; his mental condition; his occupation; Ids economic status and other factors tending to preoccupation and inat tention. In conclusion I should like to present the matter of popular misconceptions and propa ganda disseminated by' well-meaning but perhaps ill-advised authorities. We have found many persons who believe that ve hicles can "stop on a dime," that certain tires are more -effective than others, that certain brakes are superior, and other glowing references to miraculous performances. Abiding faith of the - pedestrian in these alleged abilities is, we can't help but believe, a factor in their sometimes fatal false sense of security. Certainly it is no satisfaction to the victim to have proven someone a fantastic liar. Police authorities can assist in debunking many such popular miscon ceptions in the public mind Information Wanted The concluding feature of the city and the Safety Division of the International state police group sessions w'as conducted Association of Chiefs of Police, by Professor J. L. Lingo, Director of Pub- Inspector B. R. Caldwell, Administration lie Safety Institute, Purdue University. Division, 'Police Department, Los Angeles. The program consisted of twoyttteote an- California, swers to practical enforcement questions hy ; Daniel G. Reynolds, Director of Public a board of officials compriSed.of ] Safety, Miami, Florida. lowing. 'Lieut Krcml was asked "Should all acci- H. W. Johnson, Superintendent of the dents, even the most minor when there is Traffic and Safety Division, Kansas City no damage, no injury, and apparently no Police Department. 'serious violation be reported? This question Lieut. Franklin M. Kreml, Director of asked with regard to time lost by officer of accid wher be o Lit dent! gard be r tion effor thor< dent woul in n dent to d sevei terio the : to d dent: U tl thor mint little grea i be n Di the pede ing -and cola Di in c stan only pede that stre< In tion radi mint five- In ' that com He will actic SI at a mak and urer iconf Street and Highway Traffic Section 75 Occident bureau recording such accidents dramatic programs unless fully equipped for Men no apparent useful information can production in competition with best on the be obtained from such reports." air; use interviews sparingly; inject human Lieut. Krem! answered "Ideally, all acci . element by using names of people writing for dents where there is damage or injury, re information, safety material, or reporting gardless of the degree of severity, should some condition." be reported. As a practical matter, realiza tion of this idea is of course impossible but effort should be made to secure the most thorough reporting arid investigation of acci dents. Certainly many minor accidents which would thus be reported would not aid much in revealing need for various types of acci dent prevention work, but it is unsound to draw the reporting line at any minimum severity level. Severity is not the basic cri . Inspector Caldwell listed the following programs which are used by the Los Angeles Police Department: 1. "Traffic School of the Air"--educa tional; questions and answers on traffic law ;, discussion of road rules, etc. e 2. "Step On the Gas!"--interviews with raring drivers; their lives and ideas on traffic law and safe-driving practices. terion of 'the importance or significance of the accident and drawing such a line tends to discourage the reporting of many acci dents, even above the minimum level. It is thus good insurance in the interest of thorough accident reporting to take any minor reports, even though they may have little value or significance, so that the greatest possible volume of accidents will be reported." 3. "Traffic Interviews''--talks with wellknown radio, movie and civic personalities. . 4. "Traffic Mix-Up of the Mis .Family"-- the average American family in traffic; strong human interest; dramatic. 5. "What's the Answer?"--Another quiz program, using traffic questions for mate rial and commercial organization drivers as competitors. .. Director Reynolds was asked "Should not 6. "Voice of Safety"--listener queries read the arrest and conviction of a. drunken . and answered; short dramatizations of local pedestrian, when he is obviously jeopardiz traffic incidents. ing ' himself,- be considered a traffic arrest 7. "Spot Announcements"--One minute 'and conviction and be included when cal announcements sent to stations just before culating the enforcement index?" some outstanding date, holiday, or public Director Reynolds answered "Of ^course event, f^iristraas, Armistice Day, Labor in calculating the enforcement index, it is Day, etc.) V standard practice-to count'moving violations only but it "would .be possible for a drunken pedestrian to be a hazard without moving; that is, he could be lying down in the street" ' > & "Traffic Tribunal"--Listeners' questions, complaints, - suggestions and requests read and answered over air. Serves as clearing house for "pet-peeves,? hazardous locations and conditions. Latter referred to proper Inspector Caldwell vvas asked tpeques agency Tor action. Copies of local laws on tion "What are your 'suggestions,jbuuva traffic offered free to anyone taking trouble radio safety, program?-Do you.-t^ink three to write. minutes or'fifteen minutes is' more effec tive?" ;V Inspector Caldwell added: `The objec tives of police agencies engaged in radio Inspector Caldwell^, reminded the group activity seem^ to be two-fold. One, to in that 'safety programs on the radio are in crease the amount of attention devoted by competition. with .other types of programs. average listeners, to traffic problems; and . He advised: `Try to use device on'airwhich two, to `sell* police service. In general,- any will stimulate listeners to some kind of device which will serve to achieve those action, such as writing, telephoning, or tele objectives should be valuable where facili graphing;'try to obtain time on large station ties exist for such activity. Listeners may at a favorable hour; avoid inane platitudes; not remember specific .items -tiiscussed on make script spontaneous, natural. reasonable such radio programs put; thty do tend to and avoid abstractions; stiftpjy'Imwn meas retain a favorable impression toward a urements,-actions and ope&tionsj|tvoid time progressive, continuous program of traffic <conf!ict with popular, comic program: avoid safety. "Since the same amount of care and research must be given the program which emanates from a small station as that from a large one^ every effort should be made to establish a' tontact with major key network outlets. This same principle applies with respect to the time of day and the day of the week. These factors, of course, vary in different localities. -. Daytime programs might better be directed toward the women of the community; while evening broadcasts might be more general in appeal. "Audience participation is perhaps the most valuable device. If your program stimulates listeners .to ask questions by mail; to send requests for pamphlets, post ers, copies of laws, etc, you have beat able to overcome a natural inertia among listen ers. If audiences go so far as to make written responses, that very activity on their .part encourages still further co operation." In commenting on the length of program tint he would recommend. Inspector Cald well said: "Our opinion is that the 15 min ute program would be more effective in the long run. We have a feeling that' the aver age listener will receive more retainable information in that length of time; longer explanations of traffic problems can be out lined; a greater appeal to reason made on basis of scientific measurements and opera tions. "The shorter or `spot' announcement type of program demands expert writing: They must have an emotional 'punch' often im possible from a practical standpoint at least as far as police personnel is concerned. The effect is more-fleeting and unless repeated day after day, a given concept ought fall short of its objective. Further, control is not always possible; that is, when `spots' are submitted to stations, there is no guaran tee as to when they will be used. On. the other hand, if a large key station would `plus' your announcement day -after day immediately following a very popular news broadcast or 'strip' program, the shorter type of program would conceivably be much more effective than the longer infor mational type. Another factor is that 'spot' announcement time has a high commercial value and most stations- have all available time sold out, at least at favorable times of day or night "All in all, then, considering, opportunity and demand and considering available police time devotable to such long-view educational work we must conclude that the longer type of program is more effective." Lieut Kxeml was handed the question: "Should every violator of any regulation be summoned or arrested?" He answered: "In theory, every violator of any traffic regulation should be summoned or arrested. In practical enforcement however, policies modifying this theory to some extent are both necessary and desirable. In the first place, the principle of .selective enforcement, generally recognized as, highly desirable, arbitrarily requires a certain degree of con centration on leading violations at the times and places of their most frequent commission in connection with traffic acci dents to the partial exclusion of other less serious aspects of the violation problem. Secondly, some degree of tolerance above the letter of the law is frequently desirable in the interest of making enforcement ade quately reasonable and .jpermining officers to be certain of the commission of the vio lation, Thirdly, it is also a sound polio* where enforcement has not in the past been, very strict to gradually tighten up control, rather than to suddenly switch to a polio* of adhering to the letter of the law. Finally, experience has shown that many borderline and minor offenses can be effectively dealt with through the use of warnings. For these reasons, it may be better, as a practical matter, and. the purposes of enforcement are often served adequately by pojides which depart somewhat from the theoretical prin ciple of ietter-of-the-jaw enforcement" Director Reynolds received the-question: "Do. you advocate re-examination of drivers, at periods, say every three years? Why? If so, what period do you suggest?" He answered "Yes, mainly to have some control for the aged drivers. We all realize that drivers in' the tipper age groups can lose their hearing or eyesight in a short time. In order to obtain a start on tins re-examina tion of drivers it is suggested that they be re-examined every three years. Another sug gestion and one that we are trying out in Miami is that a driver after be reaches a certain age must be examined every year when he applies for renewal of license. If this applied against all the age groups, a majority of our citizens might think this too harsh so we are trying it only against the older drivers." L the eqm wot ham feet alth tion sarj spec trol dep: tica dep: offic van and sud des cun of fon ter and and It coni shoi aboi Ij use* enf* dist shot spic car objt "] spic ntol rate late Wh any of stab men met in s In i to 1 unii aut< viol wh( tine Street and Highway Traffic Section 77 j Lieut Kreml was asked if be felt that was so apparent that official action could 'the same basic enforcement methods are not be neglected. equally effective in both city and state police "It was also learned that former habits work. He said, "Generally speaking, the same of snatching a few.tainutes of sleep on a base enforcement methods are equally ef quiet side street o/ifisttipg for an. unfisual fective in both city and state police work, length of time in questionable place^ .cbbld . although some variation in detail and execu not be done without exposure. Th^s^akme tion of enforcement activities is often neces ' was a decided improvement in Los Angeles sary'- For example; the same degree of and is felt to he justified; sufficiently so as specialization of traffic law enforcement pa to encourage malting nearly all patrol cars trol work is not possible in a state police distinctive. department where every man most do prac tically every type of police work. In city departments, a spedal group of traffic patrol "The chief value of distinctive colored cars is largely psychological and Part 2 of officers can be created. This requires some this question can be `answered in this respect variation in selective enforcement planning and execution. However, with respect to The foil psychological value is achieved only when the impression is created that a such general matters as enforcement poli . far greater number of machines are on cies, tactics of patrol apprehension and securement of evidence; the general principle of selective forcemeat, etc, the same en forcement methods will apply. It-is a mat ter of slight variation as between cities and states, with the same genera! principles patrol than are actually available. White cars are considered excellent in this respect In one city where less than thirty well marked automobiles were being utilized for traffic patrol, an inquiry was directed to several organisations by a member of an and objectives in mind." official City Board, regarding their estimate of the number of distinctive colored auto Inspector Caldwell was asked a very mobiles on patrol, and the answers ranged controversial question, "To what extent from 75 to 500. should police traffic cars be marked? What about white cars?" "Action may be taken by officers in well marked automobiles and all passing drivers \ Inspector Caldwell: "Police traffic-cars, if are conscious of the event Where the same /used for the primary purpose of traffic law action Is taken by officers in an incon enforcement, should be marked in a full, spicuous car, it will probably escape, notice. distinctive manner. The word 'distinctive' Concentration of the distinctive type of. should not be confused with the word 'con vehicles for test purposes on certain streets spicuous' although a conspicuously marked has resulted in extreme favor of the well car for traffic enforcement wonld not be! marked vehicle. In cities with a tremendous objectionable. ... . it is believed the need for disjinctive wired automobiles is even greater than "It is desirable; at times, to have inc Sihose cities with a concentrated area. spicuous or non-distinctive marked auto-" mobiles employed in traffic patrol for defi "In some places a redaction in the crime nite and specific purposes, not entirely re rate has followed marking autos quickly lated to traffic enforcement regulations. recognizable as a police vehicle. One reason Where the purpose of the latter is primary, bong the ready volunteering of essential any means used to call attention to the use information by the public. of the automobile is advisable. In some Lieut. Kreml: "I don't believe any arbi states, both officers and their motor equip trary answer can be given on the question ment, used primarily for traffic law enforce of the desirable degree of conspicuousness ment are required by law to be distinctive in traffic police cars. The idea of very con in appearance, and here there is no choice. spicuous cars is supported by the principle In many places where enforcement appeared that the presence of police has in itself a to be unusually lax, it was discovered that deterrent effect on violators, and that the uniformed patrol officers, in plain, unadorned more conspicuous the car is, the more read automobiles, were permitting all manner of ily drivers will recognize its presence. How violations in their actual presence. Later, ever, this deterrent effect is necessarily pro when patrol officers were patrolling in dis portional in effectiveness to the number of tinctively colored cars, this form of neglect patrol units and the consequent frequency y % 29th National Safety Congress with which drivers are under supervision. If, as is generally true today, there are in an area so few patrol cars that the average motorist is rarely under direct police super* vision, there is serious question as to the value of the deterrent created by the pres ence of the police. Lieut Kreml added: "Certainly it would be desirable to have enough patrol units to prevent violations without the necessity of a large volume of arrests, but since this is not generally possible today, we must,'as a practical matter, recognize that some more effective deterrent than the mere, presence of the officer must be created ana this is possible only with a less conspicuous car than one which is all white or otherwise similarly made conspicuous to an extreme degree. At the same time, it is desirable that police cars be so marked as to be rec ognizable at close range, so that there may be no question as to the identity of; officers when stopping a car. "Persons seeing a police car at dose'range should be able to recognize it' and thus be impressed with the fact that there is patrol supervision. Therefore, I believe it desirable that a compromise be followed in marking police cars by marking them so that they are neither extremely conspicu ous nor extremely inconspicuous. This is usually best accomplished by lettering or other devices on the sides of the car." Lieut. Kreml was asked, if in his opin ion, Chicago's use of neon signs on cars was practical. He answered: "I believe the foregoing comments provide an adequate answer. A car thus marked may be regarded in the class, of quite conspicuous police vehicles and the practice is justified only if sufficient number of cars are available to keep traffic under almost constant supervision. Inspector Caldwdl was asked for his opinion and he said "I bdieve Chicago's use of neon signs is entirely practical, if meant to describe the car as an official police vehicle.'' THURSDAY MORX1XG SESSION October 10,1940 Group Session of Traffic Court Judges and Prosecutors Presiding: Jcdge John Gutkxecht, Municipal Court, Chicago. Relation of the Pedestrian and the Driver By JUDGE BEN S. DAVISON Corporation Court, Houston, Texas There must be a complete understanding where they know they have no right to be. and spirit of cooperation between the pe It is not as though all these people, were ig- destrian and the driver, if there is to be a . norant natives from the wilds of an African' reduction in the heavy toll taken each year jungle who had never seen an automobile in auto-pedestrian accidents. before. If they were, there might- be some Why do people jaywalk? Because they think they can save 30 seconds, and because they think they are smart enough to take care of themselves. Other people may get excuse for them. The majority of them are city-dwellers, and all of them, whether from town or country, know the habits and rules and behavior of motor cars. hurt crossing between intersections, but not I hold no brief for either motorist or they! pedestrian. Where either is wrong, I shall There's j*our answer to why pedestrians there place the blame; We do have accidents, are {tilled and injured being out in a traffic entirely too many of them, between cars stream where they have no right to be, and and pedestrians in which drivers are to blai tent all mil shit of i sire aut< as and ast< A pla< dov ave roa trib whi intc mg, sec by to itgl tho wh< or pra or l safi to acci cau swt owi Yet wot hos I the was out and nim the) ped 1 leai 1} Street and Highway Traffic Section ' 79 . blame. But isn't it a tact that we have a that one, but he does not sit all day long -tendency, through mass thinking, to blame hearing the evidence and the facts, as do ail the automobiles for all such mishaps? A we judges. So I feel l am privileged to pic- million readers of a million newspapers turize from them to you as I get them-- shiver with horror as they read a news item cases after cases and incident after incident. of another pedestrian being killed on a city street, and practically every one of them automatically pictures the driver of the car as a Mephistopheles with a pair of horns and a forked tail driving his Chariot of Dis aster. But it doesn't do any good to telhtlie whole world about these facts and figures unless we do something about it What can we do? We often think we have reached the limit in our campaign of education, and then we look at the record and find 32,000 As a judge, 1 know better. In the first automobile deaths a year staring us in the place, virtually no motorist wilfully runs . face. down a pedestrian. In the second place, the average driver observes the rules of the road. Somewhere there are usually con Child Records Excellent tributing factors on the pedestrian's part which throw a portion of his own actions into the making of an accident. Occasionally I believe we stress too much the duty of the automobilist and not enough, the duty of the pedestrian. We are begin Some Heedless Walkers ning to do pretty nicely in our school sys tem, and I am rather proud to say modestly For instance, in spite of repeated warn ing, cautions, admonitions, urges and besecchments by the authorities, by the press, by the radio to cross crossings safely--and to remain on the sidewalk until the green light flashes, there are still hundreds of thousands of our highly intelligent citizens who teeter-totter on the edges of the curb \or stand boldly on the street surface itself. - practically daring a motorist making a right in Houston we have gone a long way to wards cutting down accidents to school chil dren. But how are we going to reach the grown ups ? These people must be taught somehow. Who is going to do it, and how? Frankly, .1 do not-believe that we have yet found the technique which fits, wc have npt driveri the facts home hard enough and firmly enough' to catch the popular attention. or left hand turn to touch them! Here is distinctly a defiance of both Increase the Tempo safety and the law. It is decidedly immoral . to taunt another person into creating an accident, or through obstructive opposition, cause a perfectly law-abiding motorist to swerve or stop suddenly, endangering his own. safety and that of drivers behind him. Am I treading on dangerous ground if 1 suggest that the press, the radio and public speakers become a little more violent with these statistics? Not for a day. not for a week, but year after year. Vet pedestrians do these things, and then wonder how on earth they wind up in the There are, of course, coincidental activi ties which must go on. Thertjming of traf hospital. fic lights is important . Certainly all streets No White-wash Brush in a big city don't carry the same loads-- certainly at easily located spots there is I don't .want to preach one-sidedly agamst the pedestrian, and bearing aloft a white wash brush for the motorist But when out of 108 pedestrians who broke the law and crossed between intersections in 1939, nine were killed and 99 were injured, surely ' there are two sides to this question of auto pedestrian fatalities. need-for shorter and longer waits between light-changes. - But these we must put in the hands of competent traffic engineers who know their business. There are hun dreds of things which ought to be done, and are beingdone to make the city streets safe for pedestrians. And still, my arguments show, I think, we must go farthet^than this--we simply' must teach the adult- pedes- The individual hears of this case and - trian as well as the child in the schoolroom, learns of that, he reads about this one, and and the motorist 80 29th National Safety Congress Are Traffic Court Cases Different? By JUDGE LcROY DAWSON ' Municipall Court, Lbs Angeles, Calif. (Editorial Note: The following is a brief sunmiary.) Theoretically, traffic court cases are not different, but pracSicaflsrtbcy,,are yery dif ferent They axe different because you can't treat the average ^lator'of^raffic laws as a criminal. The average violatbr believes that his past good record-should betaken ' into account, and that he should therefore be treated leniently. Of course, even though this may be the first recorded violation for a defendant; the judge can be reasonably sure that there have been many, violations previously for which no arrests were made; Described at length the fight against ticket fixing in Los Angeles. It was won in rela tively brief time with a firm and unwaver ing policy. The worst trouble for traffic judges conies from die better dements in the community. The typical attitude in court is "why do you take the word of a common ordinary police man against that of an honest citizen (or businessman, etc.)?" It is at times difficult to choose between the word of the police man and the defendant, and it is true that the judge must check up on the policemen or they will go hog-wild. Nevertheless, the most adamant ettizoos are apt to be die most in error concerning titeTroout of streets at the scene of the arrestSand other facts per tinent to die alleged violation. Drivers should be zoned rather than high ways. Some people's, minds don't work, faster than 15 miles per hour.. The judge must handle each case psy- chologically--must reach the individual and hhratdtade; apply the best core fof thefaulty attitude. Each viola tion, wbetheKse-^not it caused an acrident, must be assumed as potentially lethal. The defendant-before the court must be assumed as allergic to die safety education current in the community. Only the important cases should be brought to the court, and then enforcement should realty apply. Slogan tor traffic judges: "Take Your Time, Or I Will." The Meaning of Speed Laws By JUDGE ft E. HAKB Municipal Court, Little Kodc, Ark. Under the "Uniform ActRegulating Traf fic on Highways," the' speed of vehicles is regulated upon a baas of sound discretion, considering the existing conditions which affect safety at die time and place. * The basis upon which die driver shall regelate his speed, and upon whidi die courts shall adjudge the legality of his speed, is what is known as die "basic-speed role," stated in section 51 of the Uniform Act: "No person shall drive a vehicle on a highway at a speed greater than is reason able and prudent under the conditions then existing." That pronouncement of die Uniform Act is practically a restatement of die faTM! rule of civil law as to due care. Upon first consideration, the rule might appear too un certain in its terms to support a criminal charge of speeding; on the theory, that the driver could never know definitely whether he is complying with die. speed law until a court or jury should pass upon die evidence. And in die earlier cases on that question, appellate courts of three of the states held that such a statute was too uncertain for a criminal statute; But die weight of authority early established that such a speed rule furnishes a valid basis for criminal charges of speeding, and it is interesting to remem ber that some of the states, where automo bile traffic was the heaviest and where the legislatures and courts would be. expected soonest to arrive at effective traffic regula tion, upheld the view that similar statutes were proper bases for criminal prosecutions. In Arkansas, the legislature las amended the Uniform Act by prescribing absolute Street and Highway Traffic Section 81 .maximum speeds beyond which it isunlaw- such prima fade limits on highways such /{<d to drive under any drcnmstances: 60 as through highways, but even there' the miles per .hoar for all motor vriuck^ -55 municipalities may.not increase-such limits for passenger bosses and half-ton trades, 45 td.more tban-4$ sidles per hour. for trades carrying op to five tons and hav . fke primamde limits do not relieve the ing brakes on all wheels,' arid- so on. But' driver, of course, of- the duty to retard his these maxunumlawftU speeds are lawfol speed for intersections, curves, hill-tops, only vriicn, under the baste speed role, they dangerous, road conditions or pedestrians or . are "reasonable and prudept under the con- vehicles using the highway, when circum ' ditioas then existing." And itmaybernen- stances require him so to retard. tinned *tmt these speed limitations appear to be'xeasonabfc. for Arkansas in ^yiew of the varied topography of oar state and the particular type of traffic on. our highways. However, the Uniform Act itself ' contains no absolute maximum Ittnjfatjrtn* Where bridges and other elevated struc tures are posted with signs stating the max imum speeds. allowable, proof of excessive speeds on such structures is conclusive evi dence of unlsWfulspeeding. upon speed except that under die basic rule "Authorized emergency vehicles," such as they most be reasonable* and prudent. fire equipment, police cars, and ambulances, are exempted from application of the prima Print Facie Lfihits :" fade limit rule when they are sounding their sirens, bells, or exhaust whistles, bat die Then, asa more nearly definite grade for drivers are not thereby relieved of the duty . motorists, officers, ,and courts, the Umform to drive with due care for die safety of Act establishes what it calls "prima fade other persons and property. - speed limits." Thin Act also takes note of the fact that This does not change the famfliarrtiles of criminal law in regard topresnmption Of /innocence, reasonabledotibt, and burden of proof. lt does, however, nake it necessary for. the driver to produce evidence of the ^reasonableness and prudence of Ins speed exceedingly low rates of speedmay also be dangerpu|, and it prohibits driving "at such aslowspeed as to impede or block the nor mal and reasonable movement of traffic" ex cept where drcnmstances require snch re duced speed. /when he has exceeded the prima fade limit The summons or a notice to appear which These prima fade limits .-within munici the officer serves upon a driver accused of palities may, however, he reduced by the violating the speed statute is directed to municipalities, with' the approval of. the spedfy the speed at which the driver is State Highway Commission, at.such inter- - .charged to have driven and also die prima sections/on the highway as themtmidpali- fade speed limits applicable to the locality. ties may determine advisable, and die prima The Uniform Act specifically provides fade limits at such intersections are the that the. prnna fade speed limit shall not speed limits: which are posted on highway affect the burden of proving negligence in signs there. And municipalities may increase dvil cases. THURSDAY MORNING SESSION Octoberv10,1940 "i ' \. * Group Session on Public Education and Traffic Engineering *" I . Presiding: Roy S. Maxshau, Vice-President, Seattle Traffic^nd Safety Council, Seattle^ Wash. / information obtained in the classification is If' there is a speakers' bureau and..it is not accurate. active in furnishing speakers for club' or More and more must'we consider the tre mendous amount of time and effort that goes into these accident facts. More and more must we endeavor to simplify the gathering of these so as to eliminate insofar as possible inaccuracies and classifications that are used very little. This will then re lease the people who. are working on them association meetings,VJthese compilations should be furnished the speakers. Statistics or accident tables in themselves are Very uninteresting and are not read or assimilated by the general public. These records, therefore, should be given the pub licity man's touch. They should be given eye appeal, if that is the correct term. so that they can put more time on the spe Local organizations interested in safety cific studies which are more immediately should give considerable thought to the in productive of beneficial results: teresting presentation of statistics. How else I was once actively interested in the com can you let the general public know your piling of this material and. did some of the problems? analyzing personally. 1 felt that the effort It is very easy to accumulate interesting expended tar exceeded the returns. Since and usable material in the information ob then a number of changes for the better tained from specific studies. This would have been made in the forms used for ob include traffic counts, driver and pedestrian taining this information. I still, however, obedience studies, collision and condition dia hear complaints that it is a lot of work with grams, etc. Usually the^remedy for a bad little in return. That is why l am convinced situation is found as a result of such studies. that further improvement can be accom I believe this material if properly used is plished in simplifying the form. of extreme importance in finding the most My second point was that more use could serious accident locations and in applying be made of the information after it is ob the most.sensible remedies. It is also of use tained. Everyone can go a lot further in in showing logical reasons for turning down the uses made of this material and this will certain requests that are not of enough im eventually bring the; returns everyone has portance in comparison to the whole to war > bedn seeking. rant immediate correction. / Soon after sending the monthly summary to the National Safety Council, most cities give the newspapers a story on this sum mary. The data can be mimeographed in whole or in part and circulated to interested agencies such as police officials, school prin cipals, local traffic authorities, pjreitf- teachers associations, etc. . _ Recently state highway departments have used vehicle volume counts in alloting ex penditures-for new road building programs. They have been able to combat political or financial influence by showing the public the logic of making improvements on the high ways having the higher vehicle volume and the higher accident frequency. A week after the monthly summary has been published, a second story can be ob tained by studying the results and compar ing them with those of the previous month, the same month, last year, or some similar period. *' **"* ___ ' From this"comparison one single-item can be obtained such as an unusual increase in pedestrian accidents or a remarkable de crease in bicycle accidents. A story devel oped around such a comparison is of news value and will receive space in the local papers. This* procedure will assure at least two newspaper stories each month. I have endeavored to gather a few ways of presenting this material that might be ot interest to you. On the other hand, you may know of other material that you consider better than that which I show you. You may, however, see some way of presenting data that has not already occurred to you.11 believe we should all be seeking new ways of presenting this same old material. Only through such new methods of presentation are we going to reach our drivers and pe destrians. In starting a revised safety committee and in. cooperation with the National Con servation Bureau, We developed a series of Radio stations will make use of some of charts for a loose-leaf booklet Here*'-`we this information in their safety programs or accomplished a two-fold purpose. First we spot announcements. acquainted, the new members with the up- J\ 84 29ih Notional Safety Congress to-date accident situation and refreshed die memories of our older members. Secondly, we provided these people with excellent ma terial for use in talks when they were called on to give such at our various dubs, etc. Many of-our committee members were city officials and these charts presented die acci dent story to them. Each member was pro vided with such a book. It bring in looseleaf form, die committee member could keep all his committee material in the book and we at headquarters could furnish him with additional diarts if they were needed. We had fourteen pages of charts and tables as follows: 1. Economic loss and prevention expendi tures. 2. Pedestrian and motorist fatalities. 3. Pedestrian-residence spot map. 4. Hour of day study of pedestrian ac cidents. . 5. Pedestrian sight accidents spot map. 6. Summary of pedestrian fatalities. 7: Chart of fatalities and personal in juries. 8. Driver residence spot map. 9. Chart of personal injuries. .10 List of worst intersections. . ; .11 Spot map of worst intersections. 12. Spot map of worst intersections the previous year. 13. List of worst streets. 14. Five-year spot map of fatalities. From time to rime we furnished addi tional data such as sheets on "Getting Re sults" as published by the National.Con servation Bureau, studies of certain intersections giving collision diagrams, report ob our measurement of the proposed traffic light installation and other similar material. Another item we are trying is a one-pagt sheet each month to interest the officials, committee members, newspapers, etc. We are using this to give the meat of the acci dent data to date and also to prod officials into action. Small booklets or leaflets are of extreme value, especially where they can be cheaply printed, and given a large circulation. We recently issued 30,000 of these. Other com munities have issued similar leaflets. Acci dent data is taken from the summaries and made the basis or theme of rach leaflets. Larger charts can be maintained and used to illustrate accident trends or need for im provement in certain areas. Spot maps will show where education and enforcement should be concentrated. Reports on special studles~can be given special attention. Recently we made a study of court roses. We wanted something done about enforcement but needed a report to prove'our case. For three months we stud ied the situation. Posters both inside and outride should be developed from the accident data. All possibly use. should be made of this material in education of the public and in selling public officials on the importance of needed improvements. Without these acci dent facts you cannot hope to present your rose. On the other hand, the gathering of statistics should not become too cumber some. Only those classifications which will be Used later should be accumulated. How a State Department Can Help Local Communities By JOHN L, TOWERS Auistant Traffic Engineer, IUinoia Division of Highways, SprjtjgfLpld, 111. . There are several reasons why a department with statewide organization is in a particularly good position to render aid to local communities: 1; Knowledge of Traffic Coir^t8"--. Whether the department in question is a Highway Department or.Motor Vehicle Administration Department, or other, the badeground of knowledge gained from such work is a vital aid in applying remedies in individual situations. This is augmented when the department handies state traffic/ administration and accident 'reporting, 2 Scope of Organization. Statewide organization assures more uniform applies- tion of engineering and educational meas- ures* 3. Type of. Personnel. Because of ex- perience and special training in traffic administration, which is not available in cities without a traffic engineer, technical service can be rendered to municipalities; also to Street and Highway Traffic Section 85 counties. However, the type of service ren- fied men is decidedly the best agency for dered to local communities should depend education of the local public. Afterits for upon the personnel assigned to this activity, mation continued assistance should be given... both as to siae and qualifications. Connecticut varies this procedure by having - These reasons indicate that there is not the Highway Department budget a portion onty an opportunity but a responsibility for of its funds to finance a State Safety Com- effective help, to .local communities; a re mission. The State Safety Commission then sponsibility as great as for any other of the helps organize and service local safety com welfare services. mittees or councils. I am informed several, Some of the aid which can be given to po litical. subdivisions may involve matters un other state safety organizations function in a similar manner. der the jurisdiction, of the department. In 2. Educational exhibits. At .state and such cases collaboration with , local officials county- fairs, city safety shows and automo promotes interest and an insight' into the so bile- shows, worthwhile exhibits can be dis lution of .traffic problems. Much of the help played. This can be done without cooperation which it impossible to give; however, involves of local groups but is more effective when . matters entirely under the jurisdiction of done with such cooperation. local officials. Here the approach must be 3. Maintenance of Police Safety Squad. purely that of an Interested* and informed A small but efficient detail of men can,, friend and every appearance of infringe ment of .authority avoided. In Illinois we among other activities, handle requests local groups for talks and picture shfms^^D have endeavored to give help only to pro mote local interest in doing the work. Noth 4. Driver Training Courses. The ing should be undertaken which promotes dependence upon a state agency for per- motion of driver education and training courses in the secondary schools is one of formingajo^l service. the most important activities which can be Ohe^rery useful tool for the promotion of . all traffic safety activities in municipalities has been the~National Traffic Safety Con test Enrollment in this by eligible cities \ gives state representatives, an opportunity to / promote and assist in the activities upon which this-contest is. judged. Cty officials more readily engage in such activities when undertaken - by a state organization. How ever, such a program should only be under taken with a fall knowledge of the work in volved and the type of personnel needed. In Illinois we have been fortunate in having been able to start courses in over 600 of the 1,000 high schools. Our program has offered the following services to the schools: they are objectively set up by an impartial . (a) Supply text material at cost of print- agency such as the Natiooal.Safety Council. ing. The results of enrolling 100 per cent of the (b) Arrange for special lectures. eligible cities in Illinois in this Contest and (c) Schedule Safety Squad Officers to then cooperating with the cities to promote show pictures, lecture, and assist with road their standing in the.contest is evidenced by demonstrations.' the awards made. Cities under 100,000 popu (d) Supply test materials. lation, where the influence of sentatives is felt most, secured Mate nine repre out fit ^ (e) Borrow jhobile dealers. dual control cars from auto* the 42 places awarded to cities in this pop\ie lation group in the last five years. If awards .(f) Supply certificates of award. were apportioned according to population, (g) Conduct road tests in' connection with we would have had probably two or three. state drivers' license examination. Education . 1. Promotion of local safety councils. In cities where interest in traffic safety has been; aroused and previous work done by department representatives so that acquain tance with, and confidence of the local people has been gained, local safety councils can be promoted with success. A properly or ganized safety council consisting of quali 5. Teachers conference* and course*. A heed arising from tlie traffic safety courses has been the presentation to teachers from each community of the techniques- of teach ing the subject matter involved. Toward this end a series of one-day conferences have been Jield in various parts of the state-for teachers and school administrators. /Also, courses have been conducted at/tne; five - 86 ?th National Safety Congress State Teachers Colleges. This year, the izing that, to handle, the many phases of Center for Safety Education of New York traffic control work more than casual ob University conducted a two-week credit servation and instruction in die subject are course at the University of Illinois. needed. For this reason. Department repre 6.Traffic Safety Contest Reports. Dis cussion of this subject probably falls mote logically under educational activities ,ihan any other, since in the end the value of the sentatives have been able to stimulate inter est among the police so officers representing 60 Illinois cities have attended , the North western University Traffic Safety Institute. report is educational. As mentioned pre 3. Promotion and Assisting with Police viously, we feel that the National Traffic Schools. In addition to giving concentrated, Safety Contest is a useful instrumentality specialized training to a few men in the for the promotion of all traffic safety activ traffic department; it is possible to bring to ities; since the annual contest report fur the entire police staff lectures on general nishes a thorough inventory of such activi phases of traffic control Municipalities oc ties and shows up the weak spots in the casionally have "police schools" consisting of safety program. : or two of lectures by authorities on Each year our engineers assist the cities phases of crime detection and con in making out these reports. When the analyses of the reports are prepared by the icAdministration CounselEven National Safety Council we review these after officers have had training, inertia in with the local safety committee or city of the' police department may make it difficult ficials so that deficiencies in the safety pro for the men. to devdop the-type of program'^ gram may be thoroughly understood. about which they haveleaijred. In numerous Enforcement . cases; the State representative finds it neces sary to continue assistance in various mat 1. State Motor Vehicle Act. A state ters after officers have had the training. motor vehicle act is of primary importance These include installation of accident report to the state as a whole, but a State Act ing systems, tabulation of accident records, Regulating Traffic on Highways based on study of accident prone locations, selective Act V of the Uniform Vehicle Code is help enforcement programs, collision and condi ful to local communities in two respects. tion diagrams, parking studies, and so forth. First, the Act requires the publication of a Not only our engineers but our Safety Manual of Uniform Traffic Control Devices Squad Officers reader aid ' to local police which serves as a guide to communities in Our officers gain more confidence than engi the installation of such devices. Incidentally, neers in questions relating to enforcement, it assures statewide uniformity in the appli and local police fee! they are talking with cation of traffic control devices. Secondly, men who understand their problems. All of the Uniform Act can be made the basis for the safety squad have completed special drafting a Model Municipal Traffic Ordi courses at Northwestern University Traffic nance for adoption by municipalities. Such Safety Institute, and areqnalified to give an ordinance can be made much more spe counsel to city police departments. To put cific in its recommendations than the -more the police work on a satisfactory basis, it general Model. Department engineers have is recommended that the Chief of the force assisted a considerable number of Illinois or some other administrative officer be cities in adopting an np to date traffic ordi trained first. Unless' this is done, if our ex nance largely because they had available the. perience is attycriterion, a great deal of pro ordinance we prepared for statewide adop motional work is necessary to sell the admin tion, which contains provisions of self- istration on the need for conducting the pro evident value even to those officials unfamil gram. iar with traffic administration. This ordinance provides for the following: Compulsory ac cident reporting, traffic engineering and ad ministration, traffic commission, bicyde registration, equipment and conduct and pedestrian control. 5. Vehicle Inspection. Since early in 1937, our Department has maintained a ve hicle inspection lane for Sise .`throughout the state during the summer months. Although several purposes have been served by this equipment, its chief advantage has been the 2. Promotion of Traffic Police Train education of the public in the cities. The ing. Police departments are gradually, real use of the lane has not been confined to ' ^-%twn*vv**** wr.- Street and Highway Traffic Section 87 communities with a good safety program, but wherever a safety program exists we have endeavored to tie up with it and give the local group an opportunity to introduce it as a feature of their program. 6. Traffic Dispatching Service.. During the summer months, the State Police, through ' the facilities of one of the large broadcasting companies, have broadcast information about traffic conditions from boor to hour over busy week ends.- These broadcasts tell the motorists the traffic conditions on the more important thoroughfares and urge the mo torists to take less congested roads. This, of coarse, is a big help to load police de partments. Engineering 1. Traffic Engineering Studies. As men tioned .before, the Illinois Division of High ways assists authorities in making many en gineering studies on streets entirely under local jurisdiction. These are made usually to give moral support to officers who have had some special training and are trying to carry out a local program. Studies made for cities on streets under focal, jurisdiction have included collision diagrams and condi tion diagrams at high, accident locations and analyses for application of corrective meas ures'; speed and volume checks; parking ) studies; complete analysis of city traffic light systems; street lighting studies; and so on. Most engineering studies are con ducted on state routes, but where feasible, city officials are kept informed of the prog ress of studies, the technique used, and the conclusions arrived at because of the edu cational value this has along traffic engi neering lines. Thus, to officials who have been accustomed to formulate remedial measures on the basis of casual observation and snap judgment, we are able, to demonstrate the. value of a scientific approach to traffic con trol and the need for making a correction only after thorough study has shown war rant for the change. 2. Aid to Counties. I-am:informed that New Jersey has made a detailed analysis of the accident experience for each of the 23 counties in the state. Each analysis contains about 100 mimeographed pages and also in cludes conclusions and recommendations. When an analysis completed, the officials of each romniumiyjin the county are called together for a ream! table discussion of the report. 3. Promotion of the Use of Traffic Engineers. One of the-outstanding weak nesses in many statewide programs has been the failure to arouse sufficient interest among city officials to adopt traffic engineering tech niques in dealing with the trafficr^pblem. It-, has seemed difficult for us tVcohymce a'ty:f administrations, and this inclu&S'a nturibef of City Engineering Departments, that it is just as important to use proven, engineering techniques in the operation of their Streets as it is to design, construct, and maintain them on an engineering basis. Because of.the missionary work done by State Traffic Engi neers in the cities in extending help of vari ous kinds, the need for specialized help in solving traffic difficulties is gradually being seen. < There are a number of agenries^which furnish good counsel to municipalities which . do not have a traffic engineer and do it with out, charge: Some of these are motor clubs, insurance organizations, the National Safety Council, National Conservation Bureau, and the Highway Department But such help as these agencies can give must be periodic and cannot include the day to day contact with situations which is needed for proper and timely solution. In spite'of all possible help from the outside, each city with any kind of traffic problem should have a traffic en gineer or assign the dnties of the office to the engineering department 4. Training for Traffic Engineers; Dur ing the past summer we canvassed men en gaged in traffic wdrk, including city engi neers, city traffic engineers, and county superintendents, of highways to see what their attitude would be toward attending a four-day lecture and demonstration course at the State university- A surprising amount of interest was shown.. The subjects to be covered are: Intersec tion design and redesign; traffic surveys in cluding volume; speed, parking, origin and destination, etc.; application of signs, sig nals, markings, and 'islands; timing traffic signals; and street fighting. I) sv i< 11 hi' : ?:?'.; Xf 88 29th National Safety Congress THURSDAY AFTERNOON SESSION October 10,1940 Joint Session with Commercial Vehicle and Transit Sections Presiding: E. E. Grover, Director o Safety and Claims, Hie Columbus and Southern Ohio Electric Ca, Columbus, O., and General Chairman, Transit Section, National Safety Council. ... ...^ Street Traffic Conditions and Mass Transportation Safety By GEORGE BARTON Traffic Engineer, Chicago Kotor Club, Chicago, III, I think I express accurately the average motorist's viewpoint in saying that he cor- diaiiy dislikes the street car and bus. I be-. lieve this is a shortsighted poticy because mass transportation and private motorists have much In common. Mass transportation accidents fall into three general groupings; one, accidents pecutiar to transit--such as derailments; two, accidents to passengers; three; typical traffic accidents. This latter group, constituting over half of transit's accident problem, has no characteristic peculiar to transit. They are just ordinary right angle or rear-end collisions, sideswipes, head-on collisions with taming vehicles, and -so on. Some result from unproper behavior by the motorist, some are evidence of error by the transit operator, while others may be attributable to the physical conditions on the street If SO per cent of mass transportation aeddents are just ordinary traffic accidents, then both transit and motorists can profit from activities which will eliminate'street traffic hazards. This work also will favorably affect transit's other accidents, particularly of the passenger type. I learned a targe percentage of passenger aeddepts occur with the sudden accelerabons or deederations necessary to avoid conflicts, Further, many of the passenger aeddents injuries result from the sudden impact when the mass transportation vehicle itsdf actaally comes in contact with other street-users, Therefore; it appears that mass tnwsportationsafety is directly rdatedto street traffic inefficiency and this bolds true for buses and street cars. May we agree then, in considering question of hSass transportation safe*,* to confine , our aWtmimw to safety matters alone, Imt to look a tittle deqwr with traffic efficiency as our ccocem? In considering concrete cases, I believe I can most readily demonstrate how similar are the interests of mass transportation and street traffic. . It appears to me that there are four sencra] dasses of treatment which make tor improved traffic Bow for both time Irani* potion and private motor vehicles. In each Justification there is work tobedone both the mass transportation authorities and street traffic authorities, Classes of Improvements The first class of improvements are those that can be obtained most easily and with virtually no expenditure of money. Two obvioussteps ffiatimmcdiately d&d at- tention areenforeement and education, to iinprove driver behavior. Well administeed driver license laws work toward this same There also are many simple and prec- Heal engineering treatments. For example, double parking is one of the greatest ob- ytarlrs -Bit***,* n as to general street traffic operation. Would ,,<* both transit and motorists benefit if the engineers planned an equitable; enforceable puking time limit? On many crowded Jnretswhere a free lane tormoving traffic not availabie between the stwrtSar and conditions. the autos parked at the curb, it would be It is commonly accepted that aeddents in profitable to the general public to eliminate street traffic are one evidence of street traffic parking at least in the rush hours. nd m more the in public prove bilesj sped* turnln mirro: he ifc usds. 1 combe eral't beeqi unsus] pen? The Street and Highway Traffic Section 89 \ When no parking zones are established to operation, or at least so it seems to me. Jrovide for bis ships, . it is- not the bus For'example^ an unexpected street car stop patron alone who profits.In eases within located in the. center of an onusually long my experience the few jMurking spaces sac block was the rite of. several pedestrian ac rificed fay the motorist are a^good invest cidents. When rite stop was abolished, the ment in traffic fluidity. Instead of bases pedestriap accidents ceased, and efficiency blocking moving lanes as they knd and un was improved. load, the motorist has a chance to rnove. Another source of annoyance to all of ns Second Class of Improvements . is the constrictions resulting when vehicles The, next . classification- of improvements park opposite safety zones, causing motor are those requiring a little more-time or a ists tobe delayed, 'whft in tarn, hold op little more money. What is it that traffic street car movements; A.better-coordination authorities can. do in this connection? of traffic signals obviously will permit free Make equitable provisions for transit: In movement- fay1'both: automobiles and mass one case within my knowledge an entire transportation vehicles. If needlessly restric street through a hairiness district was bring tive signs can be abolished, both will profit redesigned without any thought for bus Simple treatments like pavement markings routes, loading and transfer points, or ter* are of derided rid to both. Stop-clearance minris. ,, lines speed street car loading and encourage pedestrian safety. The same is true with marked crosswalks.; Street car clearance tines encourage timid drivers, to pass when it is safe for them tojdp so. Simple street widening: On many narrowstreets a free tube for motor traffic can be provided merely ty setting bode curbs a few fed at a very reasonable construction cost' This fist of work for street traffic author ities includes the ordinary .functions carried on today in virtually all our cities. Have we readied perfection in sign and signal work street! marking, parking control, and the like?'Most assuredly riot, and additionriat* eutiett to these masters will jointly benefit Jinrit and private street traffic. While the public authorities are doing this work, there is something transit author ities can contribute! First, they can select and train personnel, just as private car driv en require selection, training and control. Second, just as enforcement is required to regulate the behavior of many motorists, so also additional regulation of trimsit person nel may prove desirable; Third, could not more transportation agencies look toward Provide channelisation: Both vehicular and transit traffic will be speeded up and safeguarded by channelization projects which fill up confusing street spoc* confine traffic to apparent and definite labs, mid permit more expeditious rignslizatioo. Install loading platforms: Raised plat forms, property lifted and perhaps fenced, assist in the expeditious loading and un loading of street cars, and avoid the neces sity for the motorist to writ until this lengthy process is completed. Develop off-street storage: The creation of off-street terminal facilities for automo biles in concentrated business areas will re duce traffic delays and confusion for transit and motorists alike.;. the inherent , safety of their vehicles just as My ignorance of mass transportation prob public traffic authorities are seddng to im lems makes me hesitate to suggest duuiges prove ri>e mechanical efficiency of automo in transit systems; yet to me it seems obvi biles through such itaeans as compulsory in ous that transit shdrid consider moderniza spection?! personalty have seen many a bus tions comparable to those just suggested for renting across traffic lanes, without adequate street traffic. mirrors to. permit jtbe driver to see wbeire Off-street terminals: .Just as street space be was going; Bujies may lade turn rig- needed for moving traffic may be provided mils. If bib operations caUJor one of these through storing automobiles off the public cumbersomevehides to cutrightacross sev street^-siuriariy traffic flow can be enhanced eral traffic fapes. iai't itonty fairthatthey if terininahPfor street <ars and buses were be eqripped with rignalswhich will tell the more comutoriy provided on private prop unsuspecting motorist what Is about to hap ertyrather than in the public streets. pen? Revised operations: A certain amount of There are needless inefficiencies of trarisit ' "hating", to meet schedules may be unavoid- vy M 5H m 90 29th National Safety Congress able for both street cars and buses. For my part I believe I have seen this overdone Better scheduling then suggests itself as being- desirable to eliminate exasperating delays, even if it is necessary to make track adjustments to gain that end. A second type of operating inefficiency occasionally seen is the manner in which transit vehicles turn into or across the public streets. In one in stance, buses made three left turns around a small triangular shaped block, seriously impeding the traffic when the same service could have been rendered with three right turns if the track layout had been changed. Or as another example, I could point to wid ened streets on which the carlines1 are far off-center endangering street car and anto passengers alike. Third Classification A third classification of activities designed to further street traffic efficiency may be de fined as simple planning. The primary ob jective of this simple planning should be the segregation of mass transportation move ments from street traffic. These two classes of street users, like oil and water, mix with difficulty. For example, a major incompati bility is desired speed of operation. A street car malting stops at block after block at best averages a low speed, while the through traffic seeks to maintain a speed two or three times as great Farther, mass transportation by its very nature seeks to serve congested business centers with their pedestrians, park ing, loading and unloading, and the like. Such streets as these should never be eonletnplated'as through traffic arteries. Plans for segregation such as may be considered by public agencies include-- Construction of by-pass routes: In towns large and small, through highways -are be ing taken from the retail district and sent through the edge of the town or are skirt ing it entirely. Development of by-pass streets: In many cities, section and half-section line streets .through years of developments have become business and traction streets, while being the only continuous streets across town, they are likewise, forced to carry high speed motor traffic as well. Through constructive planning, parallel streets may be opened iip or made continuous so that they will attract motor travel, leaving the old long estab lished street free from through traffic Similarly, there seem to me to be parallel activities. Seek a sound balance between mass trans portation and motor vehicle use: Even as a representative of the private motorist, it is necessary for me to give recognition to the fact that mass transportation agencies can, if they wish, attract patronage from the ranks of the private motorist Certainly-the traveling habits of the daily worker can beinfluenced by the type of service-rendered by transit When transit offers faster, quiet er, more, frequent and deaner service, some of our traffic problems may solve themselves. Eliminate duplicating services: Transit authorities will admit that here and there needless duplication of service is rendered by street car and bus lines. In one case within my own knowledge an excellent potential one-way street system two and four, blocks from a major car line was needlessly in vaded by buses driving some motorists back on to the car line street Fourth Classification Little need be said here regarding my fourth dassification In which I hat'e placed long range traffic and transit planning. It may be some day that our transit and traffic problems may be solved--and the conflicts and accidents ended---when our cities are redesigned with street systems of jmodern design, or with multi-level streets through which traffic is segregated, and when transit is improved with modem units operating through modem structures. Improved Street Lighting and Accidents By KIRK M. REID Nela Park Engineering Department, General Electric Company, Cleveland, O. This paper is a supplement to that por tion of the report of tire Committee on Sight Traffic Hazards which presents ex amples of recent night-accident redactions through unproved street lighting. These data, together with thqse previously' re ported, show that one-third, one-half, or often more, of the night accidents are pro vento On u highv ence, by m been losses Th< this ] influe of at ceivet drew! Recdt 1. I dents, the si Th< Traffi inters after At quatc vapor the ii jury cidcnl montl injun accidt Th tersec ously, Iocati quent per ct Soti Angel tore dropp from. In analy.1 tained 2. 1 dents, ingft An has fc heavil fatal!) when At th occup to 4. highci / 1 Street and Highway Traffic Section I .. ented where.good visibility is provided. that the most lives were saved among pe )n urban streets, and on ttyose.portions of destrians. highways with high night-accident experi ence, the cost of providing good visibility by modem street and! highway lighting has been found to be less than one-third the losses from the accidents its prevents.' On a street car line m Indianapolis pas senger-type accidents occurred at a some what higher rate per passenger carried at night than by day. No information was available on the nature of the accidents nor. The Program Committee requested that on the adequacy of the street lighting. this paper include special attention to the influence of illumination upon four classes of accidents. Generous assistance was re ceived from Hawley Simpson, S.- P. An drews, E. J., Kreh, L. J. Sehrcnk, E. J. Reeder, and R. G. Jasper. Pending more detailed studies, the report of the Committee on Night Traffic Hazards summarizes the conclusion: "Traffic safety lighting continues to demonstrate its value for reducing certain types of accidents. It appears to be particularly effective in pro 1. Visibility as affecting intersection acci- tecting pedestrians." dettts, particularly vehicular accidents of 3. Visibility as affecting falls of passen the sideswipe and heqdon types; gers boarding or alighting from buses and The report of the Committee on Night street cars. Traffic Hazards presents three examples of. No data could be found- having sufficient intersection accident experience before and bearing upon this topic ,to warrant, inclu after lighting improvements were made. sion. ". At three Chicago intersections, inade quate illumination was replaced hy sodiumvapor lighting. In the 12 months preceding the installation there were 34 personal in jury accidents and 61 property damage ac cidents at these intersections. In the 12 months following there were 12 personal injury accidents and 28' property damage accidents--a reduction of 58 per cent \The lighting \vas modernized at 155 in/rsections in Saginaw,- Michigan. Previ ously, 46.3 per,cent of all accidents at those locations occurred during darkness. Subse quently, the night accidents dropped to 34.6 { [Visibility as affecting collision accidents . involving buses and street cars. A`--two-year, analysis was made of the collision accidents per trip on the Indian apolis car line previously mentioned. The night accident frequency per trip was found to be 8 per cent greater than that by day. A similar study in Elizabeth, N. J., covering all transit operations, likewise showed an . 8 per cent higher accident frequency per trip at night. The combined records of 18 bus companies, on the other hand, showed 21 per cent fewer collision accidents per trip at night Another study, covering street per cent of the total. ~ cars only, showed, a curve .of vehicular Sodium lighting was installed at 25 Los collisions which followed closely the curve Angeles intersections. Comparing equal "be of number of cars ip operation; in fact, the fore and after" periods, night fatalities two curves cross, four times over the 24- dropped from 12 to,none and night injuries hour period. from.128 to 15. From these scanty data, one would con In none of the above instances could an clude that good or bad street lighting has analysis of the accidents by types be ob little effect upon accident frequency in tran tained. sit operation. Hawley Simpson has warned, 2. Visibility as affecting pedestrian acci however, that very minor as well as serious dents, particularly when boarding or alight accidents were included in most of the ing from buses and street cars. data, and a different picture might develop An analysis of traffic fatalities by types- if the accidents were classified by severity. has been made in iDetroit on 31 miles of Such-classification was found possible in heavily traveled thoroughfares. Pedestrian only- one . case; the street car study just fatalities dropped from 36 to 14 per year mentioned in which the curve of accident when the street lighting was modernized. frequency fotlowed closely the curve of cars At the same time, fatalities of drivers and in operation. It was found that die. night occupants of automobiles dropped from 13 severity was 40 per cent greater than that to 4. While the. ratio of reduction was by dajy based upon cost of claims. In spite higher for car occupants, it is no'eworthv of this increased accident severity at night, ' 92 29th National Safety Congress operators of buses and street cars may properly be complimented by using better than average care after dark, because the over-all traffic accident severity at night is 60 per cent greater than that by day. S. P. Andrews, Chairman of the En gineering Committee, Transit Section, re ports that his Committee recognizes the incompleteness of most of the .transit -acrident data now available, and is now laying the groundwork for more detailed studies. Itwould therefore be appropriate to review the information which is needed for com prehensive studies on visibility as affecting transit accidents.' From the standpoint of traffic engineer ing, most of the "before and after" studies have lacked important details on all three of the major items--the accidents, the traf fic conditions, and the lighting. Still, less often have collision diagrams been used to depict the accident experience and to facili tate complete analysis. Only an occasional investigator has included figures on traffic Safety lighting specification in terms of minimum and average foot-candles, while a substantial step forward, is not considered to be the ultimate basis. The degree of safe seeing is also affected 1ty such factors as tbe reflection characteristics of tire pavement and the amount of glare. "Recommended Practice" states: "Since a primary purpose' of street , lighting is to provide safe seeing; for motorists and pedestrians, the specifi cation of street lighting eventually may be in terms of visibility. Researches now in progress may afford a' basis for such sped- ^ fication." y The Institute of Traffic Engineers Special Committee on Street Lighting recommends , that study and research in evaluating light-'' ing effectiveness and specification be con tinued with a.view of obtaining additional quantitative information for more definitely rating or evaluating various street lighting systems from the standpoint of visibility and its .relation ` to traffic accidents and traffic facility. volume, or has expressed the data in terms of accidents per vehicle miles or per pedes trian crossing. The information on the lighting has per haps been most deficient The usual practice is simply to refer to the accident experience under "old and new" lighting, or "before and after" lighting improvement Such gen eral verification that better visibility re duces night traffic accidents is, of course, helpful to those broadly responsible for traffic-safety programs. But more definite information is needed. The researches mentioned above have shown that visibility for night traffic safety, as provided by street and highway lighting, depends upon three principal factors: (1) Tbe brightness of the pavement at points along and across die street, measured at the near-grazing angles at which motorists and pedestrians view a roadway; (2) Tbe brightness of representative obstacles at points on and near the pavement; (3) The veiling brightness or glare from the lighting system and other sources on or near the roadway. The need of more quantitative informa tion on lighting in relation to accidents is recognized by tbe Illuminating Engineering Society's Committee on Street and-High way Lighting. That Committee also recog nizes the importance of making safety lighting recommendations more definite and more usable. Now tbe Committee is completing a new publication, "Recommended Standards of Street Lighting" which will supersede, the Code. The recommendations for each street classification ate 'in terms of the average Under former techniques the above bright ness of pavement and obstacle could be measured and tbe veiling brightness could be computed. Such determinations required long hours of field woric by an. experienced test crew late at night, followed by lengthy and involved computations. Such tech niques, though practicable, were so labo rious that they were seldom used. A new instrument; called the Street Light ing Evaluator, now permits quick and ac curate measurements of these three: fac tors. With the cooperation of traffic engi and minimum lumens per square foot, or neers, it should be posable to correlate foot-candles, delivered to the pavement and measured values of viability with detailed to the sidewalks. That is, the premium is accident experience under typical conditions properly placed on lighting equipment which of street and traffic Specification of traffic distributes effectively a greater proportion safety , lighting could.then.be placed on a of the light over the street and sidewalks. : definite and fully rational basis. r*\ 'kA omi Cot Tin for Bui 1 one den Cad the veh and cha rca drii ing mai mex coo s 1. vehi all rate mer tty, hall acd snon Z load Inai fast imp wini qua of a one as 2 on s 3. Lak was fore Bra! avei zero at t! By RALPH A. MOYER __ Associate Professor of Highway Engineering, Iowa State College, Ames, la., and Chairman of the Committee V.-The following is the Summary and Rec ing. Similarly, times of acceleration from ommendations of the 1940 Report of the 10 to 20 miles per hour varied from 6 to Committee on Winter Driving Hazards. 19 seconds and maximum speeds on circles The complete report is available in pamphlet of 100-foot radius from 20 to 10 miles per . form from the Council's Traffic Engineering hour, on dry and wet ice respectively. Aver Bureau. age winter day-time temperatures commonly Therconiplete Report presents the follow- approach thawing; at which time the wetter . ..ing information gathered in its year and ice conditions prevail. ooe-haU^of research:. (1) the winter acci dent problem; (2) .remits ,of the Lake Cadillac skidding and traction tests; (3) the special accident hazards of winter motor vehicle driving; (4)f the effect of climate and topography on these hazards; (5) me chanical equipment .'and- driving practices recommended to drivers for safe winter driving; (6) knowledge of drivers concern ing winter laardsj (7) winter highway maintenance for safety; and (8) the ele ments of.a sound system of winter road conditions reporting j Summary andRecommendations 4. Although tires with good treads are preferred to smooth tires on tjfy and: wet , roads^rperformance with new rires is no bcjtter than with smooth tires on snowy and icy^sorfaces. Motorists should not; there fore, rely upon tread, design for anti-skid protection on these surfaces. Tires of spe cial mud or lug designs, however, have advantages on loose snow, although haring no advantages on smooth ice of packed snow that is icy. 5. The common practices of lowering tire pressure and increasing the load over rear wheels to increase traction on slippery sur 1. Accident death rates as related to motor .vehicle travel are highest in the winter in jail sections of the country. Winter death rates are about 40 per cent higher than sum faces are not^rifeommended. The resulting increase in traction for stopping is slight, and this is more than off-set by reduction of safe speed on corves.' mer rates in the northern half of the coun try, and about 20 per cent in the southern half. The two major causes of .this winter accident problem are winter conditions, of snow, and ice, and longer hours of darkness. 6. The use of tire chains is the most prac tical means of self-help for increasing trac tion on snowy and' icy roads. On rear wheels they decrease braking distances and increase rates of acceleration from 20 to 60 2. One of the major winter, hazards is per cent cm dry and wet ice respectively, as inadequate traction on snowy and icy roads. compared with bare tire performance--the Inadequate traction, coupled with .speed .too variation in improvement- bring due largely fast ''for' 'road conditions and with other to the wide range of bare tire performance improper driving practices such as lack of on dry and wet ice; while performance with winter equipment and faulty braking, fre chains is fairly uniform at all temperatures. quently results in skidding. The proportion Braking distances from 20 miles per hour of accidents involving Skidding is only about on lee varied from 75 to 125 feet, and times one per cent on dry roads; bat is as high of. acceleration from 10 to 20 miles per as 27 per cent on wet roads and 50 per cent hoar from 4 to 7 seconds. New chains on on snowy-icy roads.! all wheels further, reduce braking distances 3. The most striking fact revealed by the about 30 per cent below those with new Lake Cadillac skidding and traction tests chains on rear wheels only. On icy curves, was the surprisingly wide range of per however, speeds with chains should be no formance with tare tires on smooth ice.. ; higher than without, because chains on rear Braking distances from 20 miles per hoar . wheels only do not add to control against averaged 110 feet on dry, sticky ice at near- ' sldds. zero temperatures, and 228 feet on wet ice 7,. The spreading of treated abrasives on at thawing temperatures with the sun shin- snowy and icy roads makes driving safer. i 94 29th National Safety Congress Braking and acceleration performance is be about 25 per cent, and with bare tires from 30 to 65 per cent better than on bare about 45 per cent; lower than oh dry pave ice--this variation also being due primarily ment. For equal' safety on smooth ice, to the wide range of performance with bare speeds with', chains or with, abrasives must tires on dry and. wet ice, since performance -be about oherhalf, and With bare tires about with treated abrasives is uniform at all tem one-third, of speeds on dry pavement peratures down to about zero degrees Fahr enheit Braking distances from 20 miles per hour with,...treated abrasives averaged 75 feet, and times of acceleration from 10 to 20 miles per hour averaged 4 seconds. With untreated abrasives performance is from 10 to 55 per cent better than on bare ice; braking distances from 20 miles per hour averaged .100 feet and times of acceleration from .10 to 20 miles per hour averaged 5 seconds. . 10. Highway departments should strive for "bare pavement maintenance" during the winter season. This can generally be accomplished by prompt and complete snow removal. Where it is not possible to prevent the formation of ice, the spreading of abra sives treated with sodium or Calcutta chlo ride is recommended. This treatment embeds the abrasive particles in the snow or ice, and improves vehicular performance about 30 per cetat over thatjpossible with untreated 8. The other most serious hazard of abrasives. winter driving is reduced visibility. This 11. It is recommended that state high is caused, first of all, by longer hours of way officials establish standards for the darkness, with the night accident problem proper illumination of snowplows and other seasonally more extended in northern than maintenance equipment, to give drivers ade in southern states. Snow and sleet storms quate and uniform warning of such hazards. and. accumulation of frost on windows Standards should also be established for seriously reduce visibility. Drifted snow . marking of culvert jheadwalls, guard-rails, may hide culvert headwalls and other ob and' other low obstructions thaf maJi.be structions. Motorists should maintain ade covered by drifted snow. quate visibility for winter driving through proper conditioning and maintenance of equipment, by keeping outside surfaces.,of; windshields and windows free of show and ice, and by preventing formation of fog and frost on inside surfaces through condensa tion of moisture inside the vehicle. .12 State highway departments should def velop effective systems of winter road con dition reporting, so that drivers will be^ sufficiently warned of storm and road con ditions. This information should be made readily available through aliipublicity media, and should be accurate and dependable. 9. Safe driving requires much more skill Safety instructions dealing with road or and caution in winter than in any other weather conditions should be combined with season. Speeds must be reduced on wet,. the reports. State highway departments snowy and Icy roads because of the lower should also strive for uniformity in the traction and the impossibility of sudden - meaning of their reports to the public, so maneuvers in emergency situations. To that drivers in inter-state travel can prop drive with equal safety on packed snow, erly interpret the reports in the several speeds with chains on rear wheels must states. . FRIDAY MORNING SESSION October 11,1940 Joint Session with Child Education and Transit Sections For a full report of this session, please tum to the Child Education Section, on page 165 of this volume. ADJOURNMENT