Document dajKDOr5jKXpbjMNM5ZGaqxoG

TRANSACTIONS 29th NATIONAL SAFETY CONGRESS STREET AND HIGHWAY TRAFFIC, COMMERCIAL VEHICLE, TRANSIT, CHILD EDUCATION AND HOME SAFETY SESSIONS CHICAGO OCTOBER 7-11, 1940 NATIONAL SAFETY COUNCIL, INC. . 20 North Wodkor Drive, Chicago I dis contents Street and Highway Traffic Section.................................. 3 Commercial Vehicle Section.................................................. 95 Transit Section .............................................. Child Education Sectioi............................................................. 139 Home Safety..................................................................................... 177 Safety Exposition Exhibitors................................................. 193 Index ......................................................................................................195 *27 THE Transactions of the 29ih National Safety Congress and Exposition of the National Safety Council, October 7-11, 1940, are published hi 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 the Council; however, other members may re ceive a copy of Volume I on request if they are particularly interested in industrial safety problems. THE Transactions are a condensed record of the proceed ings of the Congress. The papers and addresses hase heen 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 arc available for reference, if desired, in the files of thv Na tional Safety Council. THE National Safety Council, at its Congresses. Kvks to eliminate from discussion matters which are not perti nent to the aims of the Congress or which 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 which followed these papers NATIONAL SAFETY COUNCIL, Ik. 20 North Wicker Drive Chicago Street and Highway Traffic Section Officers 1939-1940 General Chturtuan--Judge Harev H. Porter, Chief Justice, Municipal Court, Kvatiituii, (II. First Vice-Chairmati--Colonel John A. Cutchiks, Director of Public Safety, Richmond, Va. Second Vice-Chairman--Carl J. Rutland, President, Tc\a> Safety Association, Inc., Dal las, Texas. Third Vice-Chairman--\V. GkaH.au Cole, Director of Safety, Metropolitan Lite ln>unuicv Company. New York City. Fourth Vice-Chairman--Leslie J. Sorenson, City Traffic Engineer, Chicago, 111. Fifth yiee-Chaiman--FtLKSK C Lynch, Secretary-Manager, Greater La- Angelo Safety Council, Los Angeles, Calif. Chairman, Committee on Occident Records--Wilbur S. Smjth, Research Asshum. Bureau for Street Traffic Research, Yale University, New Haven, Conn. Chairman, Annual Congress Program Committee--Walter B. Martin. Secretary. FYoria, Association of Commerce Safety Council, Peoria, 111. Members at Large-~ Leon Aronowitt, Deputy Commissioner of Motor Vehicles, Albany, Xcw York. HaRRY BarSANTEE, Supervisor, News Bureau, Travelers insurance Companv. Hart ford, Conn. R. Whitney Groo, Superintendent, Utah Highway Patrol, Salt Lake City, Utah. Howard F. Ilgker, City Traffic Engineer, Milwaukee, Wis. Captain Freu G Mills, Director of Health and Safely, Boy Scouts of America, New York City. Ex-Officio, Former General Chairmen-- William C. FCnoelk, 1522 Kane Place, Milwaukee, Wis. Pitovhasox Roger L. Morrison, Department of Highway Engineering and Highuai Transport, University of Michigan, Ann Arbor, Mich. Secretary--Earl J. Keeper, Chief Traffic Engineer, National Safety Council, Inc . Chicago, III. * . Officers 1940-1941 Genera/ Chairman--Judge Harry H. Porter, Chief Justice, Municipal Court, Evan>toii, 111. First Vice-Chairman--Carl J. Rutland, President, Texas Safety Association, 518 Inter- urban Building, Dallas, Texas. - .Ocwu/ Vice-Chairman--W. Graham Cole, Director of Safety, Metropolitan Life Insur ance Company, New York City, New York. Third Vice-Chairman--Frank G Lynch, Manager, Greater Los Angeles Safety Council, 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--Wnjiin S. Smith, Research Assistant, Bureau for Street Traffic Research, Yale University, New Haven, Conn. 3 4 29ih A afwnal Safety Congress Chairman, Annual Congress Program Committee--Richard O.. Bhs'N'ETT, Director, Lansing Safety Council, Lansing, Michigan. Members at Large-- Hakkv Baksantee, 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 C. Mills, Director of Health and Safety, Boy Scouts of America, New York Gty, N. Y. D G. Reynolds, Director of Public Safety, Miami, Florida. Capt. C J. Scavarda, Commanding* 'Officer, Safety, Traffic, and Operators' License Division, Michigan State Police, East Lansing, Michigan. Arnou> H. Vey, State Traffic Engineer, Trenton, New Jersey. .E.v-Officio, Former General Chairmen-- Wn.UAM C. KnoELK, Chairman, Milwaukee Safety Commission, Milwaukee, Wis. Professor Roger L. Morrison, Department of Highway Engineering and Highway Transport, University of Michigan, Ann Arbor, Mich. Secretary--Earl T. ReeDF.h, Chief Traffic Engineer, National Safetv Council. Inc.. Chicago. TIL ' ` MONDAY AFTERNOON SESSION October 7,1940 Joint Session with Institute of Traffic Engineers . Presiding: Judge Harry H. Porter. Chief Justice, Municipal Court, Evanston. IIL and General Chairman. Street and Highway Traffic Section, National Safety Council Interest and Plans of the War Department in Relation to Traffic Control By LIEUT.-COL. A. D. BRUCE War Department, General Staff, G>3, Washington, D. C. Some of the questions that have been a deed lately are: What is the traffic set-up in the Army? What is the Army doing to solve it* traffic problems? How can civilian agencies assist the Army iit the solution of these problems ? Wc know we shall have many traffic sit uations. They will van' from one in which the density of troop concentration is low. the road net is ample, awl the danger of interruption is small, to the opposite extreme in which the massing of troop**, and the scarcity* of good roads and danger of their damage by hostile action make it difficult to maintain supply and troop movements. In the first case, the minimum of control i> required: in the latter, a rigid control of traffic is necessary, particularly while ex tensive troop movements are under way. Our Field Service Regulations, the bases of all training regulations, has the following statement: "In general, the methods of con trolling and assisting traffic developed m civilian practice should he followed, with only the modifications necessary to meet the military requirements." The essential differences betwen peace time civilian traffic and military traffic in a theater of operations are, military traffic isubject to sudden interference and it gives prominence to secret movement at night. The fact that military traffic is subject to sudden interference by hostile activities re quire? that the plan of road circulation and Street and Highway Traffic Section traffic control be flexible, so that damaged point* may be by-passed at once, and that arrangements be made for prompt repair. Movement of traffic at night with secrecy requires the development of means of mark ing the roads and of lighting vehicles to assist drivers and at the same time avoid detection by airplane observers. This is a problem that is entirely foreign to normal, civil practice. With this general orientation wc come to the question: What is the traffic set-up in the Army? The provision of a plan of circulation, when required, the determination of the necessary control measures, and the super vision and coordination of the various agencies involved arc functions of the G-4 section of the general staff of the head quarters which controls the area involved. 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 road? indicating routes, localities, and estab lishments as shown on the maps, are func tion? of the Corps of Engineers. Coordination Enforcement of regulations and order- for traffic control and expedition of traffic arr functions of the military police. The provision of means of communication by telephone, telegraph, or radio, between traffic control posts of the military police, or other agencies involved in traffic control, is a (unction of the Signal Corps. The provision of suitable vehicle acces sories-, including adequate brakes, and satis factory lights is a function of the Quarter master Corps, Ordnance Department, or other service which provides the vehicle. Maintenance is also a problem of these serv ices. The training of organizations and of in dividual drivers in the proper use of the roods i$ one of the important responsibilities ot organization. The development of anti-aircraft protec tion of bottlenecks is primarily the function of the Coast Artillery. Defense against chemical warfare, espe cially the decontamination of road areas, Is under the Chemical Warfare Service. The Judge Advocate General is faced with the establishment of traffic rule.*. The evacuation of civilian population arc functions of G-l and G-3 of the General Staff. It i? ihu* -een that we have quite a prob lem in coordination. The next question we set out to answer is--What is the Army doing to solve its traffic problems? * In the spring of this year large maneuvers' were held in the Ft. Benning and Louisiana areas. More motor transportation was in volved in these maneuvers than ever before. Report after report indicated that our traf fic control system must be improved. Among the numerous recommendations wa* one to improve our training literature on Traffic Control. This is \vherc my di vision <G-3> fits in. In July. 1940. the Automotive Safety Foumlation offered to as>it 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 expert- . The purro-e of the conference wa* to lvterminc bv informal discussion with the various civilian experts what application, if any. the experience of these expert* might have to the problem ot" military traffic cn trol. The following three main subject* were discussed at the meeting: traffic engineering, training of traffic military police and driver training and Heel operation. A a result -of the conference Captain Everett, who is here today, was designated to attend the National Institute tor Traffic Safety Training and since that ha# gotten in contact with many civilian experts. Arrangements were made for civilian ex perts to witness the maneuvers of the First, Second, and Third Army. Among these ex perts was Sidney J. Williams. Their excel lent reports have been disseminated to the interested agencies in the Army for study. Later, a study was submitted to the Chief of Staff on means of improving training lit- eraiurc who approved a letter on this sub ject to the various agencies involved. Their studies arc raising many questions that mint be answered. For example, at the sugges tion of Army and civilian experts tests may be made to develop scientific driver selection 6 29th National Safety Congress and training that combines useful civilian developments in this field with the best mili tary practices, and to determine additional basic factual data with modem Army equip ment. The solution of some questions may involve changes in organization in the Army but definite steps toward their solution are being taken. Civilian Assistance The last question is: How can civilian agencies assist the Army in the solution of its problem ? They can devise a simple means for facilitating cooperation between military, state and city officials for traffic movement. In this connection wc may need centralization on both sides. A centralized agency in the#War Department and a central association among state, county and city authorities. For example, the problem of who to get in touch with in the metropoli tan area of Nev York is a difficult one. An ideal to work toward would be to obtain through one association the selection of rouies and provisions made for marking of routes and control in the execution of plans. Continue to push the simplification and unification of traffic rules on the grounds of national defense. In this connection the question of Hocuses for maneuvers is a troublesome one.' Continue to emphasize driver selection and training, safety measures and the like. Since you have offered your help we ex pect to call on you from time to time lo locate National Guard and Reserve officers hi civil life now engaged in traffic work; lo secure additional experts when required; to assist in drawing up courses, lecturing and the like in the several courses or schools for traffic control, driver training, driver tests etc.; to let US know of improvements in communication for traffic control; to device necessary equipment, to assist u to develop training films and strips from the Army viewpoint; to augment your disaster pUn> for flood, fire, earthquake, with plan* for evacuation of civilian population. 1 repeal I have mentioned only a few of the prob lems. I would like to point out that at the pres ent time we have had to decentralize a great deal of the work for the improvement of traffic. So many people who write or come to Washington to help us get a feeling of being pushed around. In order to obviate this as near as possible we are uin% die Automotive Safety Foundation a* a central agency for contacting the proper per-onm-l to render or receive 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 this year, showed increases. In July tlte 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 oent in 1938, 5 per cent in 1939, and seems to be holding about even, so far this year. This trend in rates is an 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 communin' control of motor traffic there can be no possible ex cuse, in peace or near-war or war. for let ting the national toll even approach the 1937 record of nearly 40,000 deaths; nearly a mil lion and a half injurie*. and billion* of eco nomic loss. Elated by the 1938 showing of over 7,000 lives saved, some of us were bold enough to prophesy that within a few years an annual death toll of 30.0GQ, 20.000 or even 10.000 would be regarded in retrospect as an incon ceivable waste, unworthy of a civilized peo ple. Must wc now regret that proud boast and hope tliat no one remembers it? That is the present challenge of traffic accident* * Street and Highway Traffic Section 7 So many factors can help to cause or to prevent a single accident, and to raise or lower the city, state or national total, that it is easy to "explain** a change in either direction. Two years ago I said that acci dents were going down because we had bet ter highways and cars, better administration of better laws, better safety education and publicity and organization, better under standing by the individual. Even then I pointed out that many states and cities had the weakest kind of safety program, that their rates were inexcusably high and that their decreases. If any, bad been more lucky than deserved. Three Dangers A year ago, when accidents were begin ning to go up again, I said that the Safety Movement was faced with three serious dangers: the threat of unwise economy in official functioning and safety campaign ing; the threat of political interference, and the threat of public lethargy--a reaction from the hectic wave of popular interest which started with "And Sudden Death" and which I fear is today too anemic to stand up against a World Scries, to say nothipg of a World War. Perhaps that suggests the crux of the whole matter. Was safety a fad, like mini ature golf? Is it a luxury, to be forgotten when *temer issues arise? Safety Is Efficiency I need not prove to you what you already know : that, leaving aside all the humani ties, safety is just another name for effi ciency. Both mean the same--doing things the right way, in the factory, on the high way. anywhere. In this year and month, more than ever before, we just can't afford to have a powder plant blow up, either by accident or by design. We can't afford to have traffic accidents tie up the swift and sure movement of goods to and from muni tions plants and Army depots, not to men tion the movement of the motorized Army itself. Every accident is a symptom of some thing wrong. Accidents and the things that cause accidents, cause congestion and delay; and we cannot tolerate congestion or dday either on the assembly line or on the high way. I venture to say that unintended sabotage through accidents Is a greater men ace than the sabotage of alien agents. Tolerate No Losses Wc cannoi 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 time, when such a loss occurs we may muddle through--but not in lime of crisis. According to news reports, one factor in the French collapse was the death of General Billottc tn an automobile accident just when he occupied a key position in the Franco-British effort lo pinch off the German drive lo the Channet. We have a real job ahead of us 5 We must stop losses of men and material every where, because our country needs men and material We must keep the highways open for military traffic, and "military traffic" today---or tomorrow--means every kind of traffic in every one of the 48 states. Correct All Defects We must therefore quickly correct the defects and deficiencies in our highway sys tem, or alleviate them with signs and sig nals. We must police these highways for maximum efficiency, and further insure the proper use of them through driver license control. We must train all our young peo ple, and many older ones if we can, so they will know how to handle their own ve hicles and, if need be. Uncle Sam's. The Army needs our help in recruiting great (umbers of competent drivers. Our state and community safety organizations have an important role to play in the mobiliza tion of all forces for national defense. We must do all this dcspttcwthe handicap of public indifference and a considerable amount of personal recklessness due to war emotions. Wc must face budget economics, which means that we .must somehow do a better job on the same or less money. We all, officials and citizens of every rank and interest, must submerge petty differences and conflicting ambitions. Can we do it? Will we do it? You in this room, more than any equal body of men in the United States hold the answer. I'm betting that we can and wilL 3 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 the 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 have 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. Simitar ac tivities arc 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. 5. Public officials (state, county and city) should investigate the seriousness of the I>edestrian accident problem. Accident rec ords provide this information and point the way to needed remedies. Accident records indicate the locations and the types of phys ical protection most urgently needed hv pedestrians, and more officials should he making use 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 laws as provided in the Model Municipal Traffic Ordinance and the Uni form Act Regulating Traffic on Highway?. 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 regulationshould 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 no: be erected unless warranted by the traffic volume, and tunnels and bridges should not be built unless conditions indicate clearly that they will be used'. They should he designed and located as to provide maximum protection and encourage obedience to pe destrian regulations. 9. Pedestrians must be compelled to olicy rules of the road and drivers must be forced to observe the rights of pedestrians it ac cidents are to be reduced to a minimum. Street and Highway Traffic Section 9 The Motorist Looks at the Pedestrian By BURTON W. MARSH (Member I.T.E.), Director, Safety and Traffic Engineering Department, American Automobile Association, Washington, D. C. The motorist looks at the pedestrian and *eS the most neglected factor in traffic. He also sees the chap who accounts for two-thirds of fatalities and nearly half of the injury* toll in cities. For the country as a whole, he sees the person who accounts tor two out of every' five killed. The motorist looks at the pedestrian and say# to himself, "There's the last object in the world that I would want to hit." For the motorist realizes that almost every pedestrian crash involves injury or death, whereas he knows that hitting another car or fixed object very often results in no injury. The considerate motorist looks at the pedestrian and says, "Why, I was in that fellow's place just before I got behind this wheel. "I'm the one now `encased in armor* ami it's up to me to give him a break. We're both street users and we've both got to learn to get along together--on a fair co operative basis, according to a reasonable set of rules-of-the-gamc. Go ahead, brother, (waving his hand), I was about to turn but you have the right-of-way here." Note please that this is the considerate motorist of whom it may be said. "Abu Ben Adam, may his tribe increase------ .** The inquisitive motorist looks at the pedestrian stranded in mid-street and asks, "Why wasn't he warned when there wasn't enough remaining time for him to cross be fore the signal light changed?** Or, "On so wide a street as this, why isn't there a atety isle in the center for him?" A bit farther down the street at a jog intersec tion he secs 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 hit 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 inquisitive and now nervously-gulping motor ist. "Why. oh why, isn't more emphasis given to training pedestrians in sound walk ing practices?" he mutters, his heart still in his mouth. **1 have my rules to follow and my responsibilities in traffic. And if 1 don't do as I should, I am quite likely to be penalized. The man afoot can't expect me to do the impossible--he should observe his rules tor walking and accept his re sponsibilities in traffic." The night-driving motorist looks at the pedestrian--or at least looks FOR him-- but finds him mighty hard to spot when dressed in all dark clothing. Isn't it reason able" he asks, "for the walker at night to wear or carry something light-colored? And furlliermore, this is a very busy artery and I've read of numerous pedestrian crashes on it at night. Why isn't it effectively lighted ?" A voice answers "Yes. those are good points, Mr. Driver, but until this artery i> traffic-lighted or until walkers are trained to show 'something light-colored, it's up to you to keep your headlights adjusted and clean, your windshield clean, and to drive slowly enough so that you won't hit a pedes trian." The sober motorist looks at the pedes trian--and secs one lurch drtinkenly across the intersection, paying no attention to the red signal. Another driver whose view of the tipsy walker is hidden by a moving truck is BARELY able to avoid hitting the be fuddled hoofer. Says the sober motorist, "Now if 1 were to drive in that condition. I'd be in for real trouble. Why shouldn't that pedestrian be taken into custody, at least for his own protection?" All of these motorists look at the pedes trian and ask, "Why aren't these pedestrian problems being given more attention?" "Well," 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 our community." "Have the facts been obtained anywhere?" asks a motorist. "Yes. the AAA has made a very exten sive study," replies the secretary, "and the 10 29th National Safety Congress results are most interesting." Fo* example, these key {acts are typical: Ten Key Crash Facts 1. Pedestrians lead in toil. In cities, twothirds of those killed and nearly one-half of those injured in traffic arc persons afoot. Even outside cities, one-quarter to one-third of those killed are pedestrians. 2. Middle-Aged and Older, Grandpa-- aged 50 or over--is the victim in the ma jority of pedestrian fatalities. 3. Male. Seven out of ten pedestrians killed arc male. 4. Death After Dark. Some four out of five adult pedestrians arc killed in hours of dusk and darkness. 5. Non-Drivers. Non-drivers, ignorant of problems and limitations of the man at the wheel, account for nine out of ten death* to persons of licensable age. 6. fay-Wotking and Playing. In cities, jaywalking in the midblock is usually the leading wrong practice of adults, while most children arc killed at play. 7. Intoxication. Studies of brain tissue or bod> fluid by New York City's Medical Examiner and the Coroner of Cuyahoga County. Ohio, (Cleveland area) involving some 000 cases, indicated that two out of five pedestrians killed had been drinking substantial amounts of intoxicant. S. Laze Income atid "Foreign'* Groups. Unduly high proportions of pedestrians killed in cities come from low income and "for eign" residence sections. 0. School Children. The fatality record of 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 arc 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 b* obtained; then we all would have a basis for improving the situation. Hut what arc the reasons behind those facts? There must be reasons why pedes trians arc so often involved in traffic crashes." Traffic specialists of the American Amomobile 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 seeing 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 Itcaring defects, for slower walking pace, lessened alertness and momentary lapses of attention to traffic. 5. In many places, there are unsatisfactory pedestrian facilities. Examples: lack of a traffic signal face ahead of pedestrian cross ing at crosswalk, too long traffic signal periods, lack of pedestrian islands, cross walks which motorists cannot see at night and in bad weathcT. 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 being on the casualty list So to meet the pedestrian's needs, pedestrian convenience should receive equal attention with pedestrian protection. An effective program based on both factors will gain general public support." Street and Highway Traffic Section II "A program, you say. Well, one surely seems to be needed But it doesn't seem to me the job to be done is an easy one. For to a considerable extent it involves cliangcs in customs. There must also !>e changes in attitude by both \vc motorists and pedestrians. Those afoot, especially the middle aged and older, must get out of their minds 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 smsibly, I can see that we motorists, having control of the instrument which can do the injuring and killing, must so drive that a crash may be avoided even vvlten pedes trians do foolhardy and unfair things." "No," answers the secretary, "it's not an easy job, nor is it one that can be done overnight But that's no reason for the apathetic altitude of some major 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 fust didn't belirz'e that much could be done." How wrong that viewpoint is. numerous progressive cities and some states arc dem onstrating. Schenectady, for example, re duced pedestrian fatalities 82 per cent in 1939. In the past few years, Cleveland by vigorous programs, has cut fatalities to those afoot more than one-half. Spring field, Mass., co-winner with Kan-a* t'ity. Mo. in the 1939 National Pedestrian Pro tection Contest among cities ot 100,000 lo 500,000 population, cut fatalities from 13 to 7 in 1939 and reduced pedestrian injuries by more than one-third. For the first six months of this year, Rochester, New York's pro gressive program has reduced pedestrian fatalities from 13 to 4. And numerous cities have pedestrian death rates of less than one-third those of others. "Well," said the inquiring motorist, "it looks as though various communities are proving that much can be done. But from what you have said, it appears that before any real program is going to be carried out, a selling job must be done." "Right!" replied the secretary*, "and that's inc reason I'm so glad to talk this over with you. For it's those of us who really sec the need and realize what can be done who arc going to have to do that telling job." *tWell," said the interested motorist. "I'm willing to do some selling* but how should our community go about this job? Aren't there a few simple, practical steps which can be recommended ?" "Yes, there arc," replied the secretary, "and in considering these remember that the need for action is great, for the pedes trian is indeed number otic problem child in traffic. Yet most communities arc not making anything like satisfactory' progress. The main reason is neglect, of lack of sufficient emphasis on the needs ot the man afoot." Six Steps to Get Results "Here is a six-point basis for getting desired results in your community." 1. Get someone assigned to the fob of becomuig 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 greatly improved. Where a traffic engineer has a staff, a man on that staff might well be given this job. In communities where that is impractical, a keen police officer might be the best selection. Incidentally, the police are accustomed to this idea of specialization where the problem warrant'* it They have fingerprint experts, ballistics experts, scientific crime detection laboratory experts, officers who-become expert in juve nile delinquency and its prevention, and some have hit-and-run case experts. "But is there enough specialized work to warrant such an assignment ?" asked the inquiring motorist. "If you doubt this, let me suggest that you study this AAA manual--pedestrian protection. Yes, there is plenty to keep any keen interested person very* busy." 2. Have your pedestrian expert-to-be get the main local pedestrian facts so that he and you will know just what your main problems and needs are. Obviously, this is the only sound way to tackle this or any other problem. And your facts and needs may differ from those of other communi ties. 12 29:h Stalionul Safety Cotitpress .1- Organize for a "total war" on pedes trian Occidents and inconveniences. The job is not wholly a traffic engineering or police job. Schools must do better their job of training children. Newspapers, radio stations, morion picture theatres, churches, automobile clubs and oilier civic agencies, mass transportation companies, insurance comjtanies, etc., should do their part in adult education. The city attorney should check to see that proper ordinances exist and prepare amendments and new proposed regulations as needed, to be enacted by the legislative branch. Steps in the `'Total War" 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 committee. Or belter, get it to direct each of its committees to propose a list of im portant practical activities which it will 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 a* a useful guide. "Organization is necessary- to do any im portant job well. I agree to that," said the motorist, "What's next?" 4. Dicidc on a vigorous, continuing pedes trian program which can and will be curried out. It doesn't need to be expensive. Much can be done with no special municipal funds, desirable though they are. Many civicminded leaders and agencies will contribute time, materials and services. The program should keep going the year 'round, with always some worthy activities getting public attention--and with enough variety, merit and showmanship to attract public interest and cooperation. ' 5. Work everlastingly for active public cooperation, for it is essential to success. Providence, Rhode Island's national record of 156 days without a traffic fatality-- which means 32,501.384 man-days--rests not only on a splinded program but al*o on sujKrrb public interest and active cooperation. 6. Enter and utilise the national pedes trian protection contest for the stimulation which active participation will provide, and for the materials and suggestions sent every three weeks. Every state and 390 munici palities arc entered in the 1940 contest, sponsored by the American Automobile As sociation. If your city has entered (it can still enter if it has not) see that full use is made of the materials and of the com petitive -pint which is one of its main value-. . "Thai pedestrian contest idea should help. Yes. those six steps seem practical and I'm going to propose them to the government and civic leaders in our community," con cluded the motorist "But suppose they agree--then they'll want some specific ac tivities and some materials to use in their project* Where can they get these?" "I'Vom several sources." answered the secretary- Source of Safety Materials "Our motor club and the American Auto mobile Association have, I believe, the larg est ^election as Three A, aided by grant* irkm the Automotive Safely Foundation, has made this a major project for four year* now. "Here i- a kit of sample and guide malerial-. am! incidentally, every city and suite entering the contest not only receives such guides, but also receives this pedestrian pointer* bulletin every three weeks. We particularly invite cooperation of cities and states in a Pedestrian Interview Plan, dcMgncd to secure pedestrians' vievvjK>iui> and factors concerning accidents. *'!n addition, excellent materials and aids are available from the National Safety Council, the Liberty Mutual Insurance Comjianv. die Travelers Insurance Co.--in tact. al>out every national organization working in the traffic field can and will hdp. "1 only wish. too. that there was time to tell of >ome grand work being done by Con necticut. New York, New Jersey. Massa chusetts, Minnesota--to mention only a few states, and by Rochester, New York, Cleve land, Cincinnati, Detroit, Minneapolis, Hart ford--to mention only a few cities." Street and Hujhivay Traffic Section 13 MONDAY EVENING SESSION October 7. 1940 Dinner for City and State Police Robert C. Dunn, Attoracy-at-Law, To ledo, 0. presided as Master of Ceremonies and made a cryphe externjHjraneom disser tation of humorous character. The "Chairman's Report" was presented hv Matthew J. Bolger, Inspector of Traffic, Police Department, Newark. N. J. The "Secretary's Report" was given by Professor Joseph L. Lingo, Director, Pub lic Safety Institute, Purdue University, La fayette, tnd. The speaker of the evening then was in troduced. a* follows; The Modem "Code of Honor" By WILLIAM J. CAMERON Director of Public Relations, Ford Motor Company, Dearborn. Mich. (The following is a summary of notes taken by a reporter during Mr. Cameron's address.) . You can't be immune from safety in the United State* today, said Mr. Cameron. The safety movement is too comprehensive and too effective in saving human life and preventing accidents. Safety has become a modem rcltgiou fwc all know the meaning of a whit** cane, signal light*, pavement markings, rule* of the road, school safety jiatrol?, etc.). On the other hand danger has a fascinat ing attraction for all of us--we left land to conquer tlu- sea and then looked to the air. A corduroy road of frozen bodies pave* the way to the poles. We have come to realize in industry that the worker is an asset and that his individ ual safety is a public responsibility, for the public |>ay- for carelessness and loss of life: the training oi new men. We are learning to be excessively .-afe in stead of considering life excessively danger ous, as we did when the motor age began to alter our live* The possibilities of dangers are increasing, yet accidents grow fewer because we arc controlling our problems on the highwaythrough enforcement, engineering and edu cation. To correct a false impression: statistics sa> one out of five in this country owns a ctr--this isn't true. There may be in ex istence enough cars to average one out of five, but that won't work out any more than it would be true to sa> one out of five pervm> owns a cap. We arc still amateurs on the road both a* drivers and as pedestrians--out of 40.000,000 drivers about 2.000,000 can be classified a* trained driver*. The attitude of the present generation is safer than among those who lived in the first part of the motor age. Today the smart thing is to drive safely. Wc carry a code of honor in our mind* when we go out to drive--to protect the other fellow as well as ourselves. "Twelve fatalities for every 100 million vehicle mile* traveled." TUESDAY MORNING SESSION October S. 1940 . Group Session for Traffic Court Judges and Prosecutors Presiding: JiocE Philup R. Gu.max, Municipal Court. Denver. Colo., Chairman, Com mittee of Traffic Court Judges and Prosecutors, Street and Highway Traffic Section, National Safety Council. 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 soda! and not a criminal prob lem. Chief Justice Harry H. Porter of the Evanston Municipal Court disagreed with this point, saying speeding and drunken driving were legally criminal cases and should be considered as such. One of the judges present stated that onetliird of all traffic cases in his city involve juveniles. Judge Harper Harb, Municipal Court, Little Rock, stated his court allows juve niles to deposit licenses on minor violations lor from 50 to 60 days. Judge Harb 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 Gilliam, in talking about extra-legal penalties, said that Denver drunken drivers formerly were sent to 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 *ometiroes suspends sentences when the de fendant cannot pay but will work it out on M)mc municipal job, such as laboring on park grounds. TUESDAY MORNING SESSION 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. K. FORSTER Director of Training, Northwestern University Traffic Institute, Evanston, III. 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 quality 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 arc 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 cn- Strcc! and Higlnooy Traffic Section 15 forcemeat logically divides itself into two phases: (1) standards of quality; (2) en forcement facilities. The first important quality standard is that there must be an adequate amount of enforcement. Studies have conclusively es tablished the definite inverse ratio between the amount of enforcement and the fre quency of accidents. The need for keeping enforcement up was recognized years ago when the "enforcement index" was first developed. The deterrent effect of a given amount of enforcement, or enforcement index, is proportional to the nature of the accident experience in a given locality and the character of the driver group under supervision. These elements being variables, it is obvious that what constitutes adequate enforcement will be a variable from place to place. It is, therefore, important that each police agency not only bear in mind the importance of having an adequate amount of enforcement, but that it define as accurately as possible what constitutes ade quacy under its particular conditions and seek to hold consistently to that IcvcL 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 of en forcement policies is justified whenever they make possible a better quality of enforce ment. Policies are sound only when they assure a kind of enforcement which assures proper balance between the needs for rea sonableness and for effectiveness, and when they are uniformly observed by all officers insofar as practicable. These conditions are best met when general control of policy for mation is vested in the administration rather than being left entirely to individual officers. Selective Enforcement The third quality standard is that en forcement should be highly selective. One of the major weaknesses of enforcement pro grams io many jurisdictions is failure to direct effort to various times, places and violations in proportion to their importance in the accident problem. Obtaining selectivity in enforcement is not only essential but is also the most logical first step improve ment. It is generally within the power of the police themselves, regardless of ob stacles to improvement of some elements of the enforcement program, to apply it selec tively. Proper use of available personnel is, moreover, a requisite to the making oi re quests for additional enforcement facilities. Newest developments in selective en forcement include its more widespread use, refinement of planning techniques and de velopment of more thorough method* for checking the degree of selectivity actually achieved. Many so-called selective enforce ment plans have not achieved the desired results because of unsound planning. As signments must be based upon study of accident records which give a reliable in dication of how enforcement may be most effectively directed. More widespread recent recognition of the fact that selective assign ment planning does not necessarily constitute selective enforcement has led to the de velopment of performance records whereby work can be checked to determine the actual degree of selectivity. This is a vitally neces sary followup technique. Next i the need for "post accident'* en forcement, or the direction of attention to violators involved in accidents. This has been widely neglected in the past, but there arc clear evidences of its increasing appli cation. The development of improved acci dent investigation by police and emphasis on the fact that, in most cases, thorough in vestigation gives the officer a legal basis for signing complaints (even though he did not witness the violation) are helping to extend enforcement along this line. Finally, in the. list of standards, is the need for an adequately high conviction rate and for penalties appropriate to offenses. There is growing recognition today of the fact that enforcement in terms of arrests alone is almost meaningless. Enforcement is real deterrent on potential violators only when to the probability of apprehension there is added the probability* of conviction and punishment. This is primarily a court responsibility, but there are many things the police can and must do. Among these arc making proper arrests, unproved case preparation, improved court room demeanor and methods of testifying, increased use of scientific aids to enforcement, such as chem ical intoxication tests and formulae for de termination of speed from skid marks, the avoidance of "fixing" and attempting to 16 29th National Safety Congress "sell" prosecutors and judges on the de sirability of good enforcement. 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 cannot reasonably criticize the court or seek better cooperation unless their own enforce ment work is above reasonable criticism. needs in this respect are gradually being fulfilled, but still demand considerable at tention. They include the appointment of well-qualified commanding office! s to traffic administration posts. Such assignments must include the delegation of authority com mensurate with responsibility and the de velopment of better programs of adminis trative activity. The next dement is personnel training. Facilities for Enforcement The attainment of these objectives de pends upon several important elements of what may be called the facilities for en forcement. Failure to meet standards may generally be traced to some weakness herein. First is the nature o* police organization for conducting the traffic program. The de sirability* of specialization has been clearly demonstrated and many municipal 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 deportment arc relieved of traffic law enforcement. Slate departments, with their limited per sonnel. cannot specialize in the same manner as cities. However, an encouraging recent trend in rural enforcement is the tendency of 'Uatc departments to specialize at least in principle by providing special headquar ters units for planning and supervision of traffic activities and by devoting a greater portion oi personnel to traffic enforcement. One of the most generally encouraging 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 been of sufficient quality to make it effective. Better planned courses and a higher quality of instruction can do much to increase both the desire and ability of police personnel to do a good job. Adequate equipment, particularly motor vehicles used in traffic patrol work, is essen tial. Most commonly observed weaknesses are poor maintenance of motor vehicles, 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 ot these is the growing practice of using motorized officers for parking supervision. Another instance is the increasing use of scientific investiga tional equipment, including chemical in toxication test devices and photographic equipment. * The final clement is the type of tactics employed. Despite the importance to an 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 being given, as it should he. to undesirable practices which, to a great extent, qualify the potential ad vantages of specialization. Among these, arc failure to employ selective assignments and the drains upon patrol strength for special details. The former has already been mentioned. Special details should be handled only when the public interest is served, and motorized traffic patrol officers should not be assigned to them unless absolutely neces sary. of inefficient methods. . Practice and opinion vary so widely on many tactical questions that it is difficult to summarize the situation briefly, par ticularly with respect to such issues as the relative merits of one or ttvo-man patrols, the desirability of open view patrolling as opposed to semi-concealment methods, or the conspicuousness of traffic patrol cars. However, there is evidence of growing ef forts to determine factually the desirahle 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 Highzcay Traffic Section 17 use of the "traffic sampling" technique. Some cities have found these speed check ing methods safer and more effective than die 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, it at all, with considerable discretion, ft 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. I have seen a great deal of the petty jeal ousies and scramble* for credit that have existed between our various federal, slate and local police departments m regard to criminal activities In some instances we arc beginning to see the same thing in traf fic work. One of the major responsibilities of even 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 ufc every* possible mean* to combat these very practical enemies of cooperation that are steadily undermining the efficiency of modem 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 the traffic officers pass up 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 ment^ a> to his own powers and duties and how they fit in harmoniously with others. In Indian** the facilities and personnel <" the state universities, the Automobile Pro tective and Information Bureau, the State Police Chiefs Association and the Stare 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 service 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 county police department m installing scientific accident prevention bu reaus and conducting in-scrvkc training. Staff members from each of these organ ization* were assigned to work directly with all police agencies in the state at no cost whatever to the agency requesting the serv ice*. A( the very start, the cooperation of the Indiana Police Chiefs Association, the Indiana Traffic Safety Council and Ihe In diana Municipal League was sought and ob tained. The support of these groups has largely accounted for the ,,sccecs 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 titan 15.000 population. IS 2V.U XaiioHof Safety Congress 2. Re-organizational programs including ihc 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 tor 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. Short conferences and assistance to police officials in 21 cities on general traffic enforcement problem*. S. 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 service and training program in Indiana is to bring about greater coordination of en forcement activities and methods 3nd 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 Muncie, a city 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, Muneic went through the first seven months of 1940 without a single traffic death and is one of the leaders ia the Na tional Traffic Safety Contest. Anderson, an industrial city 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, ot course, some of the cities where the best results have been obtained, but every city in which our group has worked lias shown a definite reduction in death* over the average of the preceding three years' record. . We feci that wc have a practical program in Indiana for the training and 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 (he program have all done actual po lice work. For those of you who might be interested in conducting any phase of this type of activity let me offer a tew 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 yout program either directly or indirectly on any police official or group. Too many training and service programs have been *'.-old" to police officials by over-zealous citizen groups only to fail because they were not sincere. 2. Don't feel that by selling the Chief of Police or Mayor of a city 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 duty. Merit only should count. When antagonism is aroused be tween the men in another division toward those in traffic the 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 must be a part of the traffic enforcement program. We try to fully train every officer in cities under 75, 000 population. Even in larger cities even.' 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 Street and Highway Truftic Section 19 certain job. Offer a factual and balanced program with proof of results and criticism will not be needed. What Is Included? First, just what is included in a typical in-service training and assistance program? The first step necessary, of course, is a sin cere desire for it, on the part of the city. In answering the question funlier let me re view briefly a typical installation under our mvn general plan of procedure. Early in 1939 the Institute received a re quest from the Major and Chief of Police .<f Gary, to assist them in the rc-organiza* lion and training of their police traffic di 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 sonnel and on organization and selective entorcemet procedures. The report was ac cepted and the program was started. More than 10 weeks were spent by our group working directly with the Gary Department at no cost to the city. Selective examina tions were given and the traffic personnel was increased from 18 men to 36 men by a re-shilling of divisions. Xo additional offi cers were hired. Two weeks of instruction 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 psychology, selective enforcement, court procedure, photography, field work, hit and run investigation and others. The old offices of the traffic division were re-vamped and the necessary report and record systems in stalled. On May .15, the five trained acci dent investigation squads and 13 trained motorcycle officers began operating. In each city members of our group assist the police department in other phases of the halanced program. A day by day series of puhlicity releases on the enforcement activ ities of the police department are given to the local papers. Speeches explaining the purpose of the police program are made be fore local citizen groups and service clubs. Tn two cities our group actively assisted in the organization of a safety council to sup- lort the work of the police department. In general, we try to assist in any and all ac tivities that will obtain the needed support tor the police efforts iu a well-balanced pro gram. Much of the follow-up work done by our group consists of activities to gain this supiR/rt. Recommendations In summarizing, let me enumerate the specific services wc offer to police groups in Indiana at the present time through our cooperative program: 1. In-service training and assistance, in cluding police department surveys for cities of more than 15,000. 2. Advanced training courses in city po lice deparunents where basic in-service school- have been conductcd- 3. Basic and advanced training course* at Purdue Univer*itv for police officers and administrator* from cities under 15,000. 4. Regional training courses in variou* parts of the state for police officer* in the regional area. Classes are held one after noon eaqh week for 10 weeks. 5. Special short courses for police recruit* to be held at Purdue and in the larger cities. 6. Direct in-service assistance to policedepartment* and city officials m public safety problems. 7. Development and promotion of uni form standards for recruiting police offi cers, personnel ratings and general enforce ment activities. 8. Jn-service assistance to police official* in setting up administrative, organization and training programs, personnel and record systems. 9. Development and promotion of legisla tion designed to benefit the individual police officer and the police profession. 10. Studies and research on police prob lems with the university acting as a clear ing house for information of value to all police departments. \\> have been more than pleased with the demands for services which have come in from police agencies in ait parts of Indiana. With only one staff member assigned on full time from each of the cooperating agencies and with the present facilities available through the Public Safety Institute 20 29ih National Safety Congress ot Purdue, our present program must, of necessity, be somewhat limited. The serv* ices which 1 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 neces sary to sell the men in the Department on the safety program before attempting to sell it to the public. Tt was brought out that ^ending men to traffic schools builds up their interest. The issuance of a ltouse organ is also an effective means of maintaining In terest One newspaper, feature article suggested was "Around the clock in traffic safety" which depicted the police at school cross ings, a motorcycle man apprehending a speeder, an accident squad investigating an accident and attending the injured parties and a maintenance crew working on traffic light? and signs. Daymn. Ohio, has open safety meeting? conducted by police for fleet operators. Lynn, Mass., held a three-day pedestrian clinic. Eyes were tested and reaction limes checked. This proved to be very* popular, it was reported. Toledo, Ohio, has furnished maps to school children showing the safest route to school. Some 38,000 maps were distributed. San Antonio has conducted a "man on the street" broadcast in which courteous and safe drivers were interviewed. Substantial prizes were given, such as a year's supply of gasoline and a complete set of tires. The programs were broadcast twice a week. Open house programs at police head quarters for civic groups proved to be popu lar. The accident prevention activities of the department are emphasized at these open houses. TUESDAY MORXINC. SESSION October 8. 1940 Group Session for Public Education and Safety Organization /'residing: 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 Council. . The Community Safety Council By GEORGE M. BURNS Director, Kansas City Safety Council, Kansas City, Mo. Whenever we attempt to discuss com munity safety councils from a national view point, wc must realize that the organization and financial set-up of these safety councils varies extremely in the different cities. Some of them are financed by and are a part of the chamber of commerce, some are oper ated with funds from community chests, au- Sireei and Highway Traffic Section 21 tomobile clubs, and in many other ways. This being the case, I will stick closely to the Kansas City plan. Back in 1921, when there were only 45.000 motor vehicles registered in Kansas City it was discovered from the meager records tliat 71 persons had lost their lives as a re sult oi motor car accidents. This was an alarming situation. It was decided that a community safety council should be organ ized in Kansa? City. Not only was the Safety Council organized to study the local problem, a* it pertains to traffic safety, but, rather to stimulate interest in safety in all its varied forms. It was the hope of this 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 Council is not a branch of the city govern ment or the police department, but. rather, is composed of representatives of business firms and individuals who not only furnish the necessary finances but also supply the membership for committees. As an out growth of this early organization, wc now lave a community safety council with a membership of over 300 firm* and indi viduals. The working organization consists of an executive committee who*e principal func tion has lo do with the budgeting ami ap proving of the financial expenditure* and a Hoard of Governors comprised of approxi mately 75 representative business men and public officials who determine the policies of the organization. Since the Kansas City Satctx Council wafirst organized, it has operated a.- a tricily non-political, rum-profiting; orjeanization for the prevention of accidents in the home, on the streets and in the industries The work of the safety council is handled through its various committee with their recommenda tion* being sulxnitted to the Board of Gov ernors before any attempt made to put them in operation. The basis upon which these committees proceed with their prob lems is primarily that the <-olut*oo lies m tlie application of engineering, education and enforcement. The Safety Council is oper ated on the basis of the exchange of ideas wit)i the hope that as a result of keeping the public informed through the prevt, radio and other advertising media, wc ma> be able to obtain a continued strong public sup port. Top Men Needed Since the community saict> council work* for the welfare and safely of all the citi zen>, ue mujt 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. tltc name? of these men lend prestige to the organization and cause Mr. Average Citizen to tec! that if John Jones, the presi dent of one of the most respected banks of the community, is affiliated with the safety council it really must be a worthwhile proj ect ami merit:- his support and cooperation. The*c people arc also of very material asNiauce when there- Is need for new or >pccial legislation. To tin- end that accomplishment* may re sult, the -afety council should always act as a coordinator for ai! interested agencies in the promotion of community safety. The reason tor this is very evident when wc con>nlcr that if the police department, the citv administration, the schools and other inu-rc-ted aecneie* conducted their own program there would be a great deal of duplication of effort and many things attempted which would lie directly the opposite of one an other. With >uch administration of a safety program, it ** readily seen that the all-iu'jwnani general public would become coniti-cd and the program would bog down with no tangible results being achieved. v- >ou know, the public must be informed of the necessity for new legislation or en forcement and favor it before it can ever hope to be -uccessful. Many of our bc*t program-' for traffic safety have met defeat because the people were not informed about what csmlti be accomplished. Since the com munity "atety council is an unofficial organ ization, it I-* the group which can best take to the public, the problems of traffic safety and the proposed plans for the corrective measures needed to solve these problem*. Thc rea*on for this is apparent when wc consider that should the proposal come from the Mayor, tor instance, the member* of the opposite political party immediately form the opinion that he is merely building cam paign material. With this type of reaction, to the program, it is easily seen that after a few member? of the city council hear com plaints of this nature, they are likely to at- 22 29th National Safely Congress tempt to curry favor of the general public in their desire for re-election and pass ordi nances which would totally block the traffic safety program. Reaching the Public Xow, how docs 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 the 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 the safety council sponsors and furnishes all needed supplies to 105 junior safety councils in the public and parochial schools. In 1937, Kansas Gey 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 child has been killed by a motor car while going to and from school for a period in excess of five years. We feel 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 part in the traffic safety program is the work that is done with the fleets in the promotion of safety. In Kansas City, we conduct a contest with 69 fleets operating some 2,000 vehicles. The results of the work of the community safety council are intangible; we cannot say that we have saved a certain life or that >ve 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. Street and Highivay Traffic Section 23 tenancc of traffic control devices, budgeting and taxation, and public schools. When you consider all these functions which have some direct bearing upon traffic safety, and which operate more or less in dependently. controlled mostly by the diy charter and a mass of ordinances, it becomes quite apparent that some means must be de vised to coordinate their traffic activities, if the city* is to gain real control of traffic accidents. Some means must be devised to educate the responsible public officials in the modem ' technique? of traffic accident prevention, and to stimulate the adoption and application of improved practices. The safety commission is designed to bring about a meeting of minds through frequent contact, and through factual studies includ ing studies of the activities of the several departments bearing upon traffic control and safety. These studies measure the results be 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 iKrttcr methods. The processes are scientific. That means patient investigation, the gathering of per tinent factual data, and the interpretation of such facts in terms of improved depart mental action. Promulgation to the public of interesting factual material and of the highlights of plans being developed or ap plied for the protection of the public is an important part of the Commission's work. That is essential as a means of building public support for the application of sound accident prevention measures. Studies of this nature, and especially ma tured plans for betterment, or action under way. furnish a splendid basis for public safety education. Education founded upon such matters can be made interesting and vital. In my opinion that kind of education commands far keener attention than safety education based upon platitudes, general statistics, and personal opinions. A Traffic Safety Commission of the kind 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 along the lines I have described. 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 civic and business representatives. Its operating expenses are provided for in the city budget. 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 the 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 lias 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 functions 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 func tions concerned with the traffic accident problem. Some of those functions arc: 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- Organization of the State Safety Council for Traffic Safety By HAROLD L. MUELLER President. Oklahoma State Safety Council Associate Editor, The Daily Oklahoman and Oklahoma City Times, Oklahoma City, Okla. 1 cannot understand a campaign that too often appears waged on the theory that the way (o vanquish the enemy is tu whip him on the head with a pamphlet or a tabulation. Inexperience may be the explanation of my impatience with slow progress of the at tack. Possibly gains cannot be made rap idly. I don't know. Out of a short experience 1 have arrived at a few conclusions. A state safety council or a statewide or ganization of some kind is essential to the conduct of a militant safety program in any state. I believe this because I have become con vinced that the reduction of traffic accidents like the preservation of liberty requires con stant hammering. A state council is the hammer. When I first became acquainted with the existence of a state safety council in our state I was not convinced it was an essential element in success of a state program. I could not see, for instance, why a state safety program could not be conducted ef fectively by our state department of public safety There is a safety program in Okla homa because there is a state'safety council and whenever, or if, the state council goes dead, the program will collapse. We have a safety department and a highway patrol in our state because a safety council got the department created and the patrol estab lished. We have an official attitude favor able to safety activities because of the un tiring efforts of a safety* council. I can say this because the credit for these accomplishments goes to others; not to me. 24 29/h Xal'wital Safely Congress The important work and the heavy work wa- done while I still was casing across ?topUnc$. As. I have learned, by degrees, group? that may not be in agreement on anything but the belief that an improvement in traffic safety is important. how safety councils are formed and how The state council should be big enough they operate I have become converted to ami strong enough that, collectively, it is their usefulness. more powerful than any of its elements. It I do not now believe a .safety program can W carried on aggressively in any state if the roponsibility for the success of the pro gram rests principally upon one group of must be representative enough that it can apply pressure to accomplish dcr-irahlc, )>enc6cia! ends and to block undesirable or selfish or crackpot proposals. individuals or one class of individuals. T do not think a program can accomplish maximum results if it is, for instance, en trusted solely to officials or political hands. Once organized and operating, a state safety council should not forget it? primary* function. A safety organization composed of all the sheriffs of a state, even though each was Its Primary Function dnrere. could not get a statewide safety' job My idea is that a state council's primary done. function is to provide leadership and direc I do not think a safety group composed entirely of newspaper editors could direct a completely successful program; nor a coun tion for a statewide program and lo har monize and coordinate the activities of ail of the many agencies that are interested in. and cil composed wholly of safety experts and can .be interested in, traffic safety. engineers*, vuyr a council composed only of representatives of insurance companies; nor a council composed of a committee for the membership of (he state legislature; nor a council composed of automobile mechanics, or highway builders or paving contractors, or Main street merchants, or ministers or umyor Representative? from each of these fields must he included, to the extent it is prac tical to do so. in the membership of the hoard of directors or the executive commit In performing this function it is most im portant to establish a broad program in which the public and official viewpoints arc properly balanced. And their activities and participation thoughtfully coordinated. When official activity leads, the safety organization must sec that public interest U maintained in proportion. When official in tercut and activity lag, the state organiza tion must persuade officials it is the public*? desire to have greater interest and activity. tee of the state organization. When both official and public interest lag, The policy-making group of the state the state organization must generate public council should include as great a variety of interest and stimulate official interest. viewpoints as possible. In balancing a program and coordinating OthcrwiVe the program will be lop-sided, the various activities. I know of no better the objectives will be selected unwisely, the program will be narrow--rather than broad --and the cooperation of agencies vital to success will be lukewarm or absent. The state safety council must have the genuine, honest and energetic* support of every' public and private agency and group that can strengthen the attack on loss of life, injury to human bodies and damage to property. It cannot afford to overlook any; it must have them alj. It must be so constituted that it not only can rationalize divergent viewpoints and harmonize antagonistic interest? but it should have among its membership the men and women who arc the representatives-- the spokesmen, if possible--of diverse general guide than the three E`s of traffic safety: Education, enforcement and en gineering. Every phase of traffic safety activity falls into one of these classifications. I can think of no other classification to arid to these three. T do not think any one of the throe can be neglected. It is up to each state safety council to study the over-all traffic picture in it? state and to decide which of the three E's should have the greater stress--the greater empha sis. If mv observation is correct the emphasis now being applied is not equal on each of the three elements of the problem. Street ami fJ'ujhicay Traffic Section 25 The cmpha!i* xeros applied m the fol lowing order: Education, enforcement, en gineering. I do not believe this order of emphasis is getting maximum results. At least, not maxi mum immediate results. The order should be revised to put en forcement first, engineering second and edu cation third. 1 say this because I believe I perceive hoth bull-headed resistance and scornful in difference to the present style of traffic safety education. 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 a? safely as tltey think necessary. What arc tlie stories in the newspapers that have a deterrent effect on reckless, careless and illegal driving? I believe they arc the stories of two kinds: Those that re port -irict enforcement*, and those that re late the sordid details of bloody accidents. I hate lo think we have to kill somebody in gruesome fashion every day or so and spread (he story across the pages of our newspaper? to scare readers into decent driving. There i> a weakness, too. in tile horror type of accident story* From the standpoint nt education Though it may cause the reader to pause and thick he is likely to >hrug his shoulders and av. 'That will never happen to me." The account? of strict enforcement-- vigilant patrols, many arrest? for violations, courageous prosecution? and certainty of punishment--mmter effectively on every in dividual. 1 don't feel that mcTta-ol traffic on the highway? this year amt the element of jitter? caused among drivers by concern over the war arc a sufficient explanation for the in crease in motor vehicle wrecks. I think re laxed enforcement, which the public seem? to prefer--although it expresses itself otherwise when questioned--accounts consid erably for the rise in the accident line on the 1W0 chart. Where greatest responsibility rest? and where largest result? can be obtained with a given amount of effort are controversial questions which each safety council must stud> earnestly. Decision of the majority then should guide the council's activities. There is a tendency to go off on tangents and make problem? seem harder than they arc. After alt, there arc only three elements embraced in traffic: The driver, the car, and the road way upon which the driver operates his car. The car is further advanced than the other two. Roadways need to be better en gineered. Rut if every new mile built in the United States is engineered perfectly from the standpoint of safety there still will be hundreds of thousands of miles of obso lete and hazardous slab. Wc can't remake our highway system overnight- It would take hundreds of millions of dollars of mono we haven't got We have to replace poorly-engineered rood? with modern roads a< we can afford to do so. We have left only the driver t*v work on for immediate revolt? Appeal- ln*t -cent to regt.-ter very ?trumtly oa him It k*k like He ha? ma<lc stiffened enforcement im perative. Safety council? rmM the mevr? who arc faced with dm ooptca-am ta*fc And they mtt?t realise that if ?tr:erer en forcement i> to avrsed pethke IcwkHich th* law?, rule- and regularity- -*** ->* rr*u-t U- itmnd and -cnsible TUESDAY AFTERNOON SESSION October 8. 1940 General Session Hr,-sidut}j. Ji*DCF. HU mv H. PortFt. General Chairman. Street and Highway Traffic Sec tion. National Safety Council. 26 29th National Safety Congress Street and Highway Traffic Section 27 Selling Enforcement to the Public By ELIOT NESS Director of Public Safety, Cleveland, Ohio In 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 up 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 lator was a violator; no matter whether his arrest was of a criminal or traffic nature. As a result, respectable citizens were humili ated and mistreated because they were sub jected to the same treatment as thieves and meetings and various sodal gatherings. Lit erature was widely distributed as well as posters and signs obtained from generous firms. Trade papers and foreign language publications were regularly supplied with appropriate articles. criminals. The educational program was laid out on The enforcement was wholly unrelated to traffic experience. Spasmodic drives and speed traps became common and traffic ar a selective basis. Hazardous practices were specified and attacked, dangeroas places and locations concentrated on and accident-prone rests tended to become merely an excuse groups reached. for raising revenue. The result of all this was that hostile Consequently, the public became very hos tile toward traffic enforcement policies of police departments. public attitude gradually changed to a friendly and cooperative spirit when people learned that the police program was based on an honest and real need for the betterment and It was not king before intelligent police officials saw the necessity for a fair and effective enforcement program as well as a friendly public relations program. good of the entire community. The police strategy board decided upon and guided the public relations policy. A monthly luncheon meeting was held, spon Accident investigation was established on sored by the safety council and under the an exhaustive and scientific basis. Squads chairmanship of the director of public safety. were set up on a selective enforcement basis, It was attended bv top-ranking members of every accident was carefully investigated by the police department and officers vital in trained officers and complete information traffic safety, as well as invited guests. gathered. The accident facts were interpreted by exj'cricnccd officers and traffic engineers. Officials were now* in a position i< know when and where accidents were occurring, their types and, finally, why they were oc curring. ' Reports were read from the traffic en gineer, the traffic statistician, public relations bureau, child safety division, enforcement bureau, traffic post division, etc. Suggestions and ideas were introduced freely and openly discussed by the entire board. With all this data before them, police of ficials could now determine accurately the proper attack necessary' and were in a posi tion to go before the general public and explain their problem. The police explained what they were planning to do and why, as well as what they hoped to accomplish. This Judges, police,, prosecutors, reporters, city officials, etc., were invited to participate whenever their experience and position was believed to be of value in connection with some problem. Awards ior the safety con test were presented at these meetings. was substantiated by authoritative statistics. The meetings of the strategy board have A well-promoted educational program was done a great deal toward originating effec found to be the most effective and desirable tive weapons and methods for traffic enforce way of selling enforcement. A public rela ment. They have encouraged suggestions and tions bureau, or a comparable body, was set ideas from all members of the police depart up to act as a liaison and press agent for the ment and have served as an efficient and police department Officers were carefully effective means of consolidating and formu selected for special abilities along this line lating a successful policy for traffic enforce and were assigned on a full time basis. ment and safety. Report of Committee on Tests for Intoxication By DON F. STIVER Director, Indiana Dept, of Public Safety and Chairman, Committee on Tests for Intoxication The Following is the Summary of Com mittee Recommendations presented in the 1940 Report of the Committee on Tests for Intoxication. The complete report is available in pamphlet form from the Coun cils Traffic Engineering Bureau, During the past year, the Committee has continued its program of promotion of scien tific tests. In addition, it has undertaken three projects which are reported upon in the report. These are; 1. Study and preparation of recommenda tions on methods for handling drunken pe destrians. 2. Study of tolerance to alcohol. X Study of legal problems relating to compulsory tests. \lo. the 1940 report contains information new accident tact?, 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 tests. Summary of Committee Recommendations The following rcco:nmmdaii-M include those which were made in the progress re port in 1959 They arc prr-ented here in revised form a* a compM*- 'ummarv of all the recmnnjen<lAt;4i- made hj the Com mittee: Examining Suspected Persons 1. In every examination to determine in toxication. quc*ti<is should be asked at the 5c<nc of the accident or violation, to collect videnec for ruling out possible false deternc-* of illnes*. injury, taking of medicine, drinking since the accident, or non-operation of a motor vehicle. 2. Officers should be thoroughly, trained in the examination procedure, particularly with reference to observing objective symp toms, and should use a special report form for recording answers io questions, observa tions of physical conditions and results of coordination te^ts. 5. The Alcoholic Influence Report Form is recommended for use by city and state enforcement departments Parts of the form that are not adapted to local conditions may I'e omitted o a to shorten it. 4. Chemical tests of body fluids or breath should be used in all cases where drivers are suspected of being under the influence of alcoholic liquor, as a supplement to the officer's examinations. They should be used also in questionable cases involving pedes trians suspected of being under the influence of akohol. 5. Clinical examinations by physicians are recommended at least for those cases in which the person has been injured or com plains of illness. . Obtaining Specimens 6. Specimens for chemical tests should be taken as soon as possible after the accident or violation, to permit a more accurate esti mate of the degree of influence 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 time, to pro vide evidence for a more convincing case. /. Whenever possible, sufficiently large specimens should be taken to permit dupli cate tests when a case U to go to court. A portion of the specimen always should be retained in a tightly stoppered container, sealed and kept in a refrigerator until the case i* closed to give the defense an op portunity to make a check test Borderline Limit* & When the concentration of alcohol in the blood is above 0.15 per cent, alt persons show* a definite loss of that clearness of intellect and control of themselves which they would ordinarily possess. The Com mittee recommends therefore that blood al cohol concentrations above 0.15 per cent *houId be considered as definite evidence that the driver or pedestrian was under the influence of alcohol. *' 9. When the level of alcohol in the blood is 0.15 per cent by weight or below, a great many people will be under the influence of alcohol. The Committee recommends prosecution in-such cases when the circum stances and results of physical examinations confirm such evidence. However, when the level is below 0.05 per cent, the person should not be prosecuted for such a charge. 10. The Committee recommends that in 28 29th National Safety Congress every ease al! 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 11. Each state should consider the adop 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 u<cd in place of the term "in toxicated" in laws and ordinances. Legal definition* of the phrase "under the influ ence" should be improved, clarified and made more uniform. The Committee sug gests adoption oi the Arizona definition as one step in improving legal definitions.* Setting Up a Testing Program 14. Before using chemical tests for en forcement purposes, a carefully planned edu cational program, should be carried on for several months, to stimulate interest and to obtain support from judges, prosecutors, police officials and the public in the new program.** 15- Police, chemists and others who will be handling specimens for chemical tests should be given thorough training in the proper procedure lor handling the speci mens so that results of the tests can be ad missible in court.*** 16. The Committee is of the opinion that most of the commonly used chemical tests* are satisfactory provided thev arc properly made bv compe*eni and well trained per sons, For practical medico-legal purposes, the mctltods when properly used can be considered as specific lor alcohol.* "Stcfxani n. State. *2 Pmc. (2nd) 615. '*Scc discussion in complete report. **Instructions for examining suspected persons xnd ebtainiiiR specimen* arc given in a mimeo* acrapbed memorandum '`How to Handle _ the Driokiaje Driver." available from the National Safety Council. 17. A person who plans to make chemical tests tor 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 should be permitted to make the tests. 18. The Committee strongly recommend# 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 result# and physical impairment. 19. A fee should be paid for the analysis of the specimens especially when the analy ses arc made in a private laboratory or by a private physician. In cases involving con victions, consideration should be given to in cluding the fee as a part of the court costs. When this is done, suspects should be ad vised of the procedure. 20. City and state enforcement depart ments should work with police surgeons, physicians, hospitals, departments of health, and other technical persons or department" in the establishment of cooperative arrange ments for making chemical test# and for presenting expert testimony. 21. Ultimately, a state-wide testing system should be adopted in each state, with Stand ardized laboratories, preferably approved by state departments or courts, set up in cen trally located districts. 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 to develop pub lic support. 23. Educational and enforcement methods should be directed at drinking pedestrians on streets and highways as well as al drink ing drivers. . 24. The Committee recommends the use of chemical tests in civil as well as in crim inal cases, and recommends also tliat their use be considered by industry' in determining intoxication of employees when necessary. tA description of several test method* Is riven in the 1958 Committee Report. Copies of this report are still available from the National Safety Council. Street ami Hightvay Traffic Section 29 25. The Committee should continue its program of scientific study and promotion, looking forward to completion of the final Committee report in 1911. During this next year, particular attention will be devoted to U) promotion of scientific methods and of legislation, (2) completion of study of com pulsory tests, (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, K. S. C. During the past year, it was planned to complete the study of the entire speed prob lem by giving special attention to speed en forcement, educational materials relating to =peed and speed regulation. and to complete the study of speed control in municipalities. Three sub-committees were appointed to accelerate these studies. It was hoped to have the final Committee report ready for presentation at this time. However, a great deal of material and sug gestions were assembled by these SobCommittecs, and it was found that more lime was needed to finish the job. Hence, it has been decided to present a brief report of progress at this lime, and to delay com pletion of the final report until at ka*l wne time early next year. The three project Sub-OommiitcT-'* which have been working during (he par >rar arc a# follows ; 1. Sub-Committee ocl Educational Mate rials. Professor C. C. WUcy, Chairman. 2. Sub-Committee on Urban Spvvd trol, T. J. Sebum. Chairman. 3. Sub-Committee ca Enforcenwwt of Speed Regulation. Captain C. } Servant*. Chairman. This progress report <roni>< a hnrf summary* of the activities oi the Sub Ccovmittees. and a review of the major neonmendations. During Use remainder oi tfat> year and the first part of next year, it isplanned to prepare the final Committee re port which will summarize information presented in the three preceding reports and will outline in some detail the essentials of a reasonable speed control program for Mates and municipalities. Review of Sub-Committee Reports The Suh'Committee oh Education was appointed to review existing educational material on speed control, to attempt to harmonize conflicts ixx data or statements, and to select materials for educating the public on control of speed for safety. The various means for carrying on the educa tional program also were to be studied. Subjects rdating to speed control on which the public should be informed were subdivided into three classifications: 1. Need for operating at reasonable speeds. Z Education on speed limits and on en forcement policy. 3. How to adjust speeds to conditions. The Sub-Committee oh Urban Speed Control has concentrated its attention pri marily ca development of an urban speed control program based upon the speed pronson> as given m Act V of the Uniform Vehicle Code. This peed control program mehades (1) setting proper speed limits. (2) oabHshkig speed zones where necessary. (3) carrying on an educational program, (*) reasonable cnfprccmcnt of speed regula tion.-. The Sub-Cammittre oh Enforeement vs as appointed to develop a policy for the en forcement of speed laws. Such a policy was desired as a guide for police administrators when preparing instructions for patrol offi cers and as an aid in achieving a proper balance between enforcement'' of speed and other traffic regulations. The Enforcement Sub-Committee's rec ommendations stress the need for all police departments to adopt a uniform policy for enforcement of speed regulations and to fur nish specific instructions to officers. Under the enforcement policy recommended by the Sub-Committee, tolerance would exist only as may be necessary to take into account possible errors in speedometers and in par- 30 29ih Natiomit Safety Congress mg. Much of the enforcement would be conducted under the basic 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. Eu/orivmcni Policy--The essential points .the value of reasonable speed limits, some attention to that subject is warranted here. k is well known that speed limits which arc posted in many locations are entirely iuo tow. This applies both to the posting of the usual residence district and rural speed limits, and to the posting of special zoned speed limits. in the statement of enforcement policy in clude the following: Need for Reasonable Speed Limits 1. Enforcement of speed regulations should be directed most critically against drivers who arc involved in collisions while operating at excessive speed. 2. Enforcement should be directed against all persons who are driving at a speed too fast for the conditions regardless of whether the speed is in excess of lawfully estab lished speed limits, or below than. 3. In accident cases involving excessive speed, officers should seek all evidences from wJiich they may determine the speed of the violator's vehicle prior to the accident. 4. In cases of excessive speed when there is no accident, officers should determine the speed driven by paring or by some other acceptable method. Then, they should ob tain all other available evidences that the speed driven was unreasonable or unsafe or potentially so. This will involve notations on all pertinent conditions such as weather, visibility*, highway surface, traffic and physi cal conditions, and information on speed or the range of speed customarily driven at the time of day upon the section of street or highway. Speed limits should be noted, but will be useful as evidence only when the speed driven was in excess of the limit 5. Tolerance should exist only as may be necessary to enable officers confidently to swear that the person apprehended was actually driving at or In excess of a certain speed This situation is partly the result of ob solete speed limits, but it is due also to the mistaken belief of some officials and of many persons living m the area that low limits arc necessary to hold down speeds. In many localities speed limits have been posted at unreasonably low values because it was the line of least resistance. Persons living along the streets ask for the low limits to `'protect their children," and ob tained support for the lower limits from their aldermen or other officials in their part of the city. In addition, police officers fa vored the lower limits since it made less work for them to get evidence of a speed violation. When the limits are sec suffi ciently low, the officers could make all speed arrests for speed in excess of the limits, with no need to make arrests under the basic speed rule during times of unfavor able weather, visibility or traffic conditions. At present there seem to be three schools of thought as to what speed limit signs should mean to the motorist. Some officials appear to think that the)- should serve merely as guides to reasonable speeds under average favorable conditions. Others think that they should represent the maximum speed generally permissible under normally favorable conditions. Still others say they should represent maximum speeds above which a driver never should go, irrespective of conditions. The first two generally favor 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 risibility 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. Since each Sub-Committee has stressed 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 tlie motorists will use them as guides to reasonable speeds and recognize that they can exceed them without danger of arrest. This is then followed by an enforcement polio- which does not begin apprehension Street and Highway Traffic Section 31 uiiiu the posted limits are exceeded by some indefinite amount. Thus under favorable conditions there are actually two official speed limits, the one $iio\vn on the sign and the one where en forcement begins. Since the average motor ist has no means of knowing (he spread between the two under different conditions and in different localities, he must set his own values and in so doing may run into conflict with the law. When police administrators adopt uni form policies and when police officers are trained to carry on a greater share of the speed enforcement under the basic rule, 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 ob jectors to drive their own vehicles over the section in question at speeds which they consider as reasonable maxtmems. They arc usually surprised to Icam that their speeds and the pro-ailing speeds of other vehicles are considerably higher than the speeds which they had recommended as desirable maximum?. In more than half the states there is au thority for establishing special limits through zoning 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. In the remaining places wliere there is no zoning authority*, the existing speed limits sboold be posted only on sections of street or highway where the limits air 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 should be told of differ ences between prima facie and absolute speed limits. They should be told that if they do exceed prima facie limits, they are subject to arrest and must be prepared to prove that they were driving at a reasonable and prudent speed. Recent speed studies in Kansas City, Missouri, have shown the value of posting proper speed limits. There; results of speed observations show that actual decreases in driving Speeds resulted from posting in creased and more reasonable speed limits. In one instance, a change of speed limit from 25 to 45 miles per boar on a section of street outside the built-up district re sulted in a change in maximum sj>ccd from 72 to 45 miles an hour, and a change in average speed from 37.8 to 34.1 miles per hour. There was no change in enforcement. Value of Speed Observations 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. Tt is the firm conviction of the Committee that drivers want to drive safdy 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 clue to the safe speed at that location under the same conditions. Some will be driving too fast, it is true. Traffic engineers often consider that 10 or 15 per cent of drivers are going too fast, and use the top speed of the remaining 85 or 90 per cent as an indication of the maxi mum speed for safety. It is rather discouraging sometimes to find that existing posted speed limits 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 not 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 so 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 use in safeguarding the establishment of reasonable limits. It is expected that these tolerances will be in terms of leeway al lowed on either side of the 85 per cent or 90 per cent speed. In addition to using speed observations in determining proper values of the posted speed limits, it is recommended that city and state traffic engineering authorities make periodic speed observations throughout their 32 >9th Xational Safety Congress jurisdictions lor use in education and en forcement as welt 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. 3. As speed practices change, results of the observations will be useful in revising posted speed limits through zoning author ity'. and in identifying locations where the blanket speed limit is sufficiently reasonable to be posted there. Summary of Sub-Committees* Recommendations 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 limits fit the conditions. Similarly, speed 2ones on rural highways must also be es tablished with reasonable numerical limits. 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 numerical speed limit should never be set so low that more than half of the traffic exceeds it under normally favorable condi tions. 3 Traffic engineering authorities should make periodic speed checks throughout their jurisdiction and results should be used in engineering, enforcement and educational phases of the speed control program. 4. As speed limits are established at higher and more reasonable values, police officers will need to give more attention to enforcement of the haste rule, especially when weather and visibility conditions are unfavorable and traffic Is heavier than usual. This should be included in police training programs- 5. There is need for proper balance be tween attention to speed control and atten tion to other afe driving and walking prac 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 cntirely 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: 1. The first step in a speed control pro gram in a city' should be <a traffic engineer ing study of the streets to determine which section of street will need to be zoned with special zoned speed limits and to determine the proper values of those limits. Studies for determining proper zoned limits should include at the very minimum (a) representative field checks of motor ve hicle speeds, (b) studies of accident distri bution, and (c) trial runs over the sections. The numerical values of the limits should conform with the conclusions reached in the engineering studies; otherwise limits should not he posted at all. Z Speed limit signs should be erected at regular intervals throughout the city so that motorists will be informed of the prevail ing limits. In some states, viIf be neces sary for the city council officially to adopt special limits for the spec <o that tltcy may have legal signif ' 3. A continuous and the cational program should acquaint citizens with the gram and its fairness to t results from speed obsc helpful in encouraging vo to the posted limits. ' blic edn- ) on to -o! pro- ricity on will be bedknee 4. The educational prop given support through r< menL Much of this a business districts and at -able weather or traffic < based upon the basic sper on posted speed limits. thoak' be enforcet m the >{ tmfavor- ons must be rather than Enforcemr Recommendations of t- ^ Enforcement Sub-Committee include th< ' ..owing: 1. Every' police department should prefer- Street and Hiyiiway Traffic Section 33 uul follow a uniform policy for enforce ment of speed regulations similar to that previously ourlined. 2. In traffic officer training, emphasis -hould be placed upon officers acquiring the ability to discriminate in the determination i charges to be preferred against violators. (. barges 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 for conditions, im proper overtaking and passing, being on the wrong ride 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 jteriodic law observance studies. The rc-ullmg data on frequency of various types of violations should be used to supplement accident report data on contributing viola tions m determining whether patrols arc making as many apprehensions a> they should on each type of violation. must be at least one-quarter of a mite m length would seriously limit its application. (It may be better to avoid use of the term "trap," by using a term such as "speed check station" or speed "timing.") Education The following arc among the recom mendations of the Suh-Committec on Edu cation : 1. Motorists should be told of the need for operating at reasonable speeds suited to the conditions They should be told what offi cials are doing to aid them in adjusting speeds to conditions, and should be fur nished specific educational information on how to make this adjustment. 2. Officials must make sure that ail posted speed limits arc 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 all unless the limits are cltangcd to reasonable and pmj*T valuethrough zoning. K States now Vlving restrictive provirions will: rc-pcct to securing evidence of -peed violations should repeal them. When special peed checking methods arc necessary, care -h*uld be taken to insure their accuracy. W tth re-pec *lo this latter recommenda'`'n the Sub-O "nmittcc found that 10 .states 3. When limits arc rea-onahlc. motoristshould be told that jxi-tcd prima facie speed limits should u-uaily be considered a- maxi mum limits. They <houM not l>o exceeded unless conditions are unuMiallv favorable and tlur motorist can *how thai he "as driv ing at a rea-onab!e and prudent *j*ecd. -;avt law *v, place limitations upon if * ' *ng evidence nf the <peed .*t which v,was driving. Two states. `rcuon : < - -xfmia. entire!) prohibit the :-* of .' yV>.^obtained through speed tmpO ...ffi states, MarylamL Pcnn- -`vania \ *;s..rirington. permit the use r(t -vid> -.nuf^r certain conditions c * PI c \\ a-. state law contains a re- uir<*nji<nt ^r-gardig accuracy of tfie speed - 'ea-nring t,, but tlie final statement m the law length of the 'trap' 4. Educational information should U- di rected at official- as well a- at motorists. They >hould be impre-svd with the need for providing reasonable limii- with adequate enforcement. The Sub-Onnnthiee rejKut- contain de tailed recommendation- and di-cu-sinnsupportiug the recommendations. These Sub-Committee report:* will not lie avail able in primed form. Thin will lie included in condensed form n the final Committee report which should !* m print hy next May. .> - ni; _______ =' '- WKOXKSDAV morning session October 9.1940 Group Session for Engineers r.-sidmi: Kochk I- Mokr.50.s-, Department of Highway Engineering and Hieh- ;`i! ymver.Mtv of Michigan, Ann Arlior, Midi., and Chairman. Traffic En- hi r-rc f. -- niti-c. Street and Highway Traffic Section. National Safety Council 34 29th National Safety Congress Selling Traffic Engineering to the Community By THOMAS E. WETZLER City Engineer, Peoria, Ilk 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 the 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 ease. 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 aits you --so take it and smile!" 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 cut 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 basis, 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 seek 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 modern thoroughfare it was necessary that the street be widened. This proposal met with united opposition, both from the property owners arid various civic organizations. How to sell 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 this 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 angle, the funds will come from state motor fuel tax." This financial arrangement was entirely agreeable. However, both the property own ers and the general public balked at the idea of sacrificing any part of the boulevard or parkways, the latter of which contained many-beautiful trees. Now our original plan was to cut 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 entirely different suggestion--one which we were sure 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 Franklin street-- which borders the centra! business district. For several years attempts had been made to widen this street, bat in the face of or ganized opposition by the property owners and lack of public interest, the improvement was abandoned. First wc called a public hearing of the property owners and learned that their atti tude had not changed. It was suggested by them that four lanes could be provided on a Street and Highway Tragic Section 35 40-foot pavement if parking were eliminated. Taking the property owners at their word we proposed to the traffic commission that parking be eliminated from Franklin street. The first day that "no parking" went into effect the merchants on the street voiced their disapproval in no uncertain terms. A petition, signed by these merchants, was pre sented. It demanded that the traffic commis sion call a special meeting to lift the "no parking" restrictions immediately. We re fused to take any action before the next regular meeting of the traffic commission a week hence, wishing to generate all the heat possible before making our next move. Ac 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 suggestion had come from their landlords, heated arguments between the two groups followed. At what we considered the proper moment, the suggestion was made that a committee of five property owners be ap pointed to meet with the city engineer in order to formulate a plan agreeable to alL Tins improvement demonstrated the fact that often the salesman of traffic ideas must have recourse to various methods, all of which hinge on the proposition of selling his idea from the customer standpoint Elliott Street Extension The latest and quite the most ambitious project wc have yet tackled is the proposed Elliott street extension in Peoria. This will provide a link in the route for cross-rivcr traffic to and from the bluff section and leads directly from the second major bridgehead. It will dead-end a second major street at the base of the bluff. Dead-ending this major street met oppo sition from certain groups interested in our major street plan. 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. When we first proposed this plan much confusion and opposition were raised, many residents of the bluff section holding the idea that it would necessitate a tunnel with large portals in front of their costly homes. A petition opposing the improvement was filed, bearing a formidable list of names. In spite of newspaper publicity and descriptions of the project the public was uncertain as to just what this improvement would accom plish. We saw that it would be necessary to do some hard selling in order to put the plan over. Consequently we built a model of the project, hoping thereby to clarify our objective. It was displayed at various civic clubs and organizations and the plan was explained in detail. Pictures and descrip tions appeared in the local newspapers, with the result that opposition to the improvement has almost entirely disappeared. From our experience with selling this idea I would conclude that in all complicated engineering improvements, a miniature of the plan makes selling much easier and is a sound method of overcoming public resis tance and misunderstanding. One of the most immediate problems which confronts the traffic engineer of to day, one that calls upon his resourcefulness both as an engineer and a salesman, is the congested central business district of larger cities. Because this problem has tn large measure remained unsolved, we see outlying districts cropping up in residential sections, with a resultant loss of business to the downtown merchant and the depreciation of property values, thereby creating "blighted" areas. Parking meters in Peoria have partially solved the parking problem, but in submit ting remedies for downtown traffic conges tion we have attempted to show the busi nessmen that it is to their interests to help the dty promote parking lots in the blighted areas near the business section and offer free parking to the public. A recent proposal was made to eliminate parking entirely on Washington street in the wholesale district, reserving the space for loading and unloading purposes only, providing that all vehicles be parked paral lel to the curb. This was passed by the traffic commission and presented to the dty council, but due to lack of interest on the part of the merchants and the public, there was no action taken. The proposal was pigeonholed. We arc still working on this problem, trying to stir up sufficient public interest to exert pressure upon the dty council to take the necessary action. As it stands now it is "no sale." likewise the promotion of free parking lots to be spon- 36 29th National Safety Congress sored by downtown merchants in coopera tion with the city is still on the shelf. While the salesman of traffic engineering cannot hope to score a hit every time, while often his plans for public safety and traffic efficiency arc met with indifference or down right opposition, he can find individuals and organizations willing to hack any sound improvement In our case we have had 100 per cent cooperation from the Illinois State highway department. We have had exceptionally fine support from the news papers. both with news items explaining the projects and editorials backing them. The Chamber of Commerce has been a valuable help through its safety council in making suggestions for traffic safety and in back ing plans in this direction. Another factor jn promoting civic engi neering of any kind i$ the support of the municipal governing body. Modi of tbe impetus given to our proposals for traffic improvement has been provided by the Mayor, the Commissioner of Public Works and -wherever public interest has backed such proposals the City Council has passed the necessary legislation. This cooperation is of primary importance in any community. In conclusion, the traffic engineer must not only have available exact information in the way of traffic counts and accident surveys, he must be able to visualize the workings of his plan beforehand, understand the public reaction to same and then--square his shoulders, put on his best Dale Carnegie manner and go forth and sell his bill of goods to the ultimate consumer--Mr. and 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- irial. 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 i 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 be done cooperatively better than individually? If we can answer that question, wc 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 wa* ever more absurd. Water is made up of mul titudes of identical ntolcducs. each of which acts exactly like every* other one. All that a sanitary engineer lias 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 came under identical, external influence*. It is a clear recognition of the hetero geneous nature of traffic that will bring us to a real understanding of the traffic prol>Jem. The engineer who has laid out a traffic system cannot predict what will Iiapj>cn with any assurance that his predictions will lo 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 Street and Highway Traffic Section 37 people whose contacts with the problem, and thus their approach to its solution, may differ widely is essential to any intelligent attempt at achieving better traffic condilions. 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 large part to do with their success. To un derstand why a particular plan was adopted, the facts and considerations leading up to its adoption must be clearly understood by i-vcryone who is to have a part in its oper ation. I think that, in the early days of traffic engineering, there may have been 2 lack of understanding between him and the enforce ment official as to their respective provinces and relationship. That is to be expected in any new functionalization of traffic han dling. That this transmission has been suc cessfully accomplished and an appropriate arrangement of responsibilities established in xt 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. Investigate Accident Causes 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 accident*. By that 1 do not mean the in vestigation of individual accidents for es tablishing rc>i*on*ibHty or as preliminary to criminal litigation. That, clearly. is within the province of the police official. It is with the investigation of mass group* of accidents that the traffic engineer oan be of mot assistance to enforcement officials. Here again I do not mean merely the prepa ration of the conventional monthly accident report, important as that is. Rather, I refer to the necessity of breaking down these figure? into their component parts and the investigation of specific locations, groups of vehicles or groups of individuals which seem to be appearing too frequently in the accident record. Such investigations arc of a statistical and technical nature and their significance can best be determined by trained engineers. This is not to say that the enforcement officials have not been alert. What it prob ably means is they have been doing the best they could, but except for such investiga tions as I have mentioned, their attention would not be directed to these places where condition? arc such that increased enforce ment, even though coupled with decreased enforcement in other sections, will result in a greater return to the public. Three locations seem to be must suitable tor city traffic engineering departments. One in the public safety or police department, one in the city engineering department ami one in a separate traffic engineering bureau. There is much to be said tor the establish ment of a traffic engineering department boil) in public safety and city engineer's office-. I think the preferred location depends largely upon local conditions and doubt that gen eral recommendation of preference can fu made. Traffic engineering departments hav^ been successful in both locations. Ultimately, however, I foresee that the work of traffic engineering departments will develop to such a point that it will become highly desirable to establish a formal dis associated traffic engineering bureau. I *a> this not because it is impossible to maintain a traffic engineering bureau in an existing department but because the work i* so highlv specialized that it can best be directed by :i:i official concentrating solely upon these duties In most city governments, the establishment of such a new department is not feasible without special enabling legislation. 1 could not, however, adequately cover the coopera tion oi traffic engineers with others without mentioning what,-to my mind, i? an ex tremely desirable objective. The Transit Official The vehicles the transit official operate* differ materially from others in the irani.stream. Street cars, for example, arc fixed in direction. While at free-running >i*ed they approximate the speed of automobile*, the* arc required to make frequent stop* and so their over-all speed is less than that of a free moving passenger automobile. Bures have similar characteristic? except tor the important distinction that they arc not fixed in direction and are free to maneu ver on the streets. However, this freedom is limited by the necessity of stopping at the curb to pick up and discharge passengers and 38 29th National Safety Congress so they, too, operate differently from other vehicles. Jt 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 alienated every user of the streets will tend to benefit. I think it may fairly be said that nothin# 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 t we proceed on the assumption that such elimination of conflicts is desirable, we pre suppose the cooperation of transit and po lice officials with 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 rife to these conflicts. These conflicts occur primarily at one point, the intersection. Anything that tends to better conditions at this point will improve traffic flow through out the area generally. I think it can be -aid there are just two things which, if in telligently applied here, will clear up most of the conflicts between units with different operating characteristics. The first is the traffic signal system. It should unquestion ably be designed for progressive operation. But the mere fact that the signals operate progressively is not enough; they must be limed intelligently. Studies leading to thp timing of progressive signals should consider the relative volume and speeds of each of the several classes of traffic and a timing should be worked out which will function most successfully for all vehicles. To move fireet cars and buses, as well as passen ger automobiles, successfully through a pro gressive signal system, it is extremely im portant that speed and loading and unload ing time studies be made on the transit vehicles to determine the probable operating conditions which must be met during each jieriod of the day. With this information, a mass transportation time space diagram can be worked out, as well as one for automo biles alone. Then, often, by slight adjust ments in the two timing programs, a new time space diagram can be developed which will best accommodate the total traffic and cause the least delay. The second cause of conflict is in the fact that both street cars and buses must stop and stand in the street to receive and dis charge passengers. To accomplish this func tion as rapidly as possible, and so with the least delay to other traffic, 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. Much of the criti cism levelled at the street car and bus by private operators comes about because of in adequate provision for loading and unload ing at intersections. These objections can be practically eliminated by a careful study of the requirements of mass transportation ve hicles. Then, after their adoption, by the rigorous enforcement of no-parking regula tions to provide maximum street space. Studies conducted by the American Tran sit Association have developed considerable information about the best design of load ing zones and the space required for bus stops. These show that, with notable excep tions, safety* zone design and distances allo cated at the curb for bus stops, are well below the standards essential for maximum traffic and transit efficiency. The exceptions occur in those places where traffic, transit and enforcement officials have cooperated in the alleviations of these conflicts. In closing, I should like to make one recommendation to transit companies. If (his recommendation were generally adopted, it would, I believe, promote much more et- fectivc cooperation of the three groups. I think it highly important that tbc transit company set up a traffic engineering depart ment within its own organization, headed by a competent traffic engineer, to work in dose cooperation with the city* traffic engineer and city police officials and handle company traf fic engineering problems. This is bring done by many city transportation properties and it is gratifying that the trend is strongly In this direction. It should be encouraged by traffic engineers and enforcement officials in cities where no single individual has traffic engineering responsibilities of the transit company. Any city large enough to main tain a traffic engineering department has reached a point where the transit company can well justify the employment of a full time traffic engineer. Street and Highway Traffic Section 39 Using Speed Observations in Zoning By L. E. HENDRICKSON Electrical Engineer, Minnesota Highway Department, St. Paul, Minn. Designers of traffic facilities consider pres ent requirements and try to estimate the fu ture demand that will be placed on these facilities. The traffic problems are ap proached with the attitude that the public must be served, and the solution which fa vors (he majority is generally adopted. Let us consider the problem of establish ing proper speed zones for streets and high ways. Factors that must be considered are: 1. The area through which the street or highway passes. Rural, semi-urban, urban or congested urban. 2. Provisions for pedestrians. 3. Parking. 4. Roadside exploitation and encroach ments. 5. Traffic volume. Peak flow; average flow. 6. Type of traffic. Percentage of com mercial vehicles. 7. Xumber of intersections and conflict areas. Sight distance at these locations. 8. Alignment and road surface. Width of right-of-way. 9. Accident experience. 10. Prevailing speeds before zoning. Without going into the discussion of these different factors in their relationship to one another, let us just consider "Prevailing speeds before zoning." Taking the viewpoint that the majority of motorists drive conscientiously, we may as sume that these motorists will choose a speed which they feel is reasonable and proper. If this fact Is properly taken into consideration, enforcement will be less bur densome and drivers are encouraged to com ply with posted speed limits, with a re sultant increase m respect for all traffic regulations. Our problem now is to obtain this infor mation, analyze the data and correlate it with all the other factors. Before discussing this procedure, it might be well to provide a brief background of speed zoning in Min nesota. In 1935, "Speed 30 Miles" signs were erected by the State Highway Department in all municipalities in the state. Often these signs were erected at the city or village limit without regard to whether the high way was an open or built-up area. In 1937, under a new law which permitted the Com missioner of Highways to establish speed zones with prima facie limits of 30, 45, or 60 m.pJu <50 m.p.h. at night in 60 m-p.h. zones), ao experimental speed zone was es tablished on U. S. 169 from Elk River to Grand Rapids; approximately 150 miles. This highway was chosen because it had sections of concrete, bituminous, and gravel surfacing, straight and winding alignment, sections of restricted sight distance, and heavy tourist traffic during the summer months. Public Approved Zoning No speed observations were made prior to this experimental zoning, but test runs were made by engineers and highway patrol captains before the signs were erected. After the zoning had been completed, hundreds of questionnaires indicated almost 100 per cent approval of the principle of zoning and of the zones as established. Public interest was very keen because this was the first high way in the state on which speeds higher than the long established prima fade limit of 45 m.p.h. in rural areas, and the more recent absolute limit of 30 m.p.h. within tmmici- palities were legally permitted. At the begin ning of each different speed zone, "Begin 30 Zone," "Begin 45 Zone," or "Begin 60 Zone" signs were erected. The confirmatory speed signs carried the message "Speed 30 Zone," "Speed 45 Zone," or "Zone 60 Nite 50." In 1938 we zoned 1700 mile* of the most heavily traveled highways. The same method of zoning was followed and, in addition, a mercury tube dew* was used to check speeds on curves. This tube was calibrated to ring a buzzer or flash a light when the curve was negotiated at too high a speed. Speed zones were thus established for curves instead of posting maximum safe speed signs for the curves. Because of the legal limitation permitting the use of only 30, 45, or 60 m.p.h. zones, many of the curves were 40 29th National Safety Congress zoned for speeds from five to 10 m.p.ii. slower than was needed. Deceleration zones of 45 m.p.ii. were established between 60 m.p.h. rones and 30 m.p.h. zones. These zones were 0.2 mile long, tests having shown that it takes that distance for Ihe average car to decelerate from 60 to 30 on a level highway without application of the brakes ami without conring. This deceleration zone was decreased proportionately on up grades ami 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. In 1039. the legislature amended the high way traffic regulation act to raise the prima facie speed limit outside of municipalities to 60 daytime, and 50 nighttime. The* power of the Commissioner to determine and estab lish speed zones was made much broader by authorizing him to establish speed zones either alx>vc or below the statutory limits, on any street or highway on or off the state trunk highway svstem. on the basis of an engineering and traffic investigation. This power can he exercised on streets or high ways not a part of Che slate trunk highway system only at the request of the local au thorities. and who in no ease possess such power. The speed limits as established and posted were made absolute. Those 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 of the 1939 law with the higher prima facie limit, it became ncce>=arv to zone only those areas where a *pecd limit below 60 was required. With the chance from prima facie V> abso lute limit "peed zones, much more care had to be exercised in their establishment. In order to provide more uniformity in zoning, it was decided that whenever possible zones of 30, 40. and 50 would be established, with 60 m.p.h. zones to ho used only where it would he desirable to have an absolute in stead of the prima facie limit. In July. 1938. the Department made 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 Electric Speedmeter The operation of the speedmrtcr 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, arc 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 arc 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 tinguishing identification. The car is usually parked clo*c to the location where the speed survey ic being made, but is parked far enough from the traveled portion of the highwav and in such a manner so a? not to present a traffic hazard or in any wav to influence the speed of the traffic. Mntorit generally pay little attention to it. The front wheels of the vehicle strike the first road switch or air tube. This start* the building up of a charge on the conden ser. At the same time, a relay disconnect* road switch so that the rear wheels will not affect the meter. When the front wheel* strike the second road switch the electrical charge is stopped. The amount of the charge on the condenser is determined by a vacuum tube voltmeter, and this is read directly in miles per hour on the calibrated mitifammeter. The speedmeter is checked by a pendulum which gives the same time im pulses as arc provided by a vehicle traveling the 15 feet between road switches. Controls arc provided for adjusting the'meter to read correctly. At least 100, and preferablv 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 *pend over three hours for one survey trying to record a reasonable number of vehicle*. Picking the Sample The speed survey's should be made during hours of the day when traffic is fairly nor mal. It is not reasonable to check just the peak flow, which might be causing conges tion. It time permits, it is desirable to make more than one speed survey at the same lo cation. or else make survey* at similar r.ear- Street and Highway Traffic Section 41 by 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 rrukc a speed survey, ihe operator should ascertain that there is nothing unusual within a reasonable distance ;hai might affect the speed of traffic; such a-. construction or maintenance work, im properly parked vehicles, near-by police cars. tr obstructions on the highway. Locations where the speed survey is to be made should be as representative as possible. It speeds at intersections are to be checked it is helpful not only to get the actual speeds through the intersection, but also at places in advance so 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 a!*o at places on the curve where there might be an accident "hot spot." Using the Data rnce the data is gathered, the question of how to use it arise*. Should an average speed he determined? Should the upper limit of the pace fthe 10 mile interval of -peed containing the largest number of cars) be considered as a top limit to be established, or should a certain percentage. *uch 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 survey*, wc have not used it in our zoning procedure because a few extremely fast cars or slow cars might unreasonably affect the average figure obtained. The upper limit of the pace and the speed at or below which 85 per cent of the passenger cars are being driven, arc given a great deal of con sideration. Generally, there will be but little difference between these speeds, and the speed zone selected from analysis of the speed survey data may be slightly above 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 lie complaint* that the speed zones arc too high or else traffic doc* not obey them at all. Reliable speed *urvcvs give the traffic engineer ome fac tual data to check these complaints and, a* so often happens, to refute all nr at leat mo*t of the allegations made. Tn making speed observation* prior to zoning, we very seldom inform police offi cers or local officials that the speed survey i* to he made, but in checking speeds in zoned areas wc often invite them to witness the pced survey. This build* good will and helps to rtah!i*h 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 Prc.fuiimj: R \ y Ashworth. Chief of Police. Pan 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 fife would be much simpler and ea*tcr if policemen did not have to bother with *uch 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 thines arc in 42 29th National Safety Congress Italy, Germany, and Russia, in this coun try we like the checks and balances that come under a system of divided responsi bility. But there are drawbacks. Probably the most striking example of the bad side of this divided responsibility in law* enforce ment occurs in the application of traffic 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 my opinion, is that the courts just haven't caught up with the automobile. It seems to me that there is a tremendous lag between the reality of the modem motor car and the court's technique in coping with the new situation. 1 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 drunk and then sus pend the sentence. . No "Oomph"? Part of the explanation is that the average judge is just plain bored when a traffic case comes before him. Traffic cases don't have the "oomph" of a nice assault and battery. These judges do not realize that the case docketed under the dull code of reckless driving, driving under the influence, speed ing, or tailing to yield right-of-way, are cases involving needless expense and pain. How* can a judge turn from a perfectly fascinating case of wife-beating to an inno cent-looking charge of driving uuder the influence, and keep his proper perspective? Wife-beating is the sort of thing that every red-blooded American resents. Driving un der`the influence is too often looked upon merely as something rather naughty. In other words, too many of otir judges do not know the meaning behind traffic laws. Their thinking is still back in the horseand-buggy days, when a man could get joy ously drunk and rely on the horse to take him safely home. But, even when the judge realizes that traffic law enforcement is a serious business, 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-covercd antique. Most traffic cases today involve almost the same procedure as our most serious of fenses, such as murder, rape, and arson. You know that in many courts traffic cases are, in fact, handled on the same docket. Why not set up a streamlined traffic court that is quite as modem as the automobile 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. Indiana System Perhaps the magistrate court is the an swer. In Indiana these courts were author ized by the legislature to "meet the many new problems which arise from modem highway traffic and from other complexities of modem life," in the words of Professor .lames J. Robinson, of Indiana University, a leader in modernization of law enforce ment. * These courts are designed to remedy the evils of the justice of the peace system and to relieve the crowded dockets of the city, circuit, or superior courts. The magistrate system almost automatically brings traffic law jurisprudence up to date, regardless of the variation in the views of individual judges. My first indictment against the courts, then, is: The judges do not take traffic cases seriously. Number two is: The system itself is not designed to handle traffic cases. Number three: Endless technicalities play on the side of the guilty defendant and oper ate against the innocent defendant. You will agree, I am sure, that half the penalty, inflicted twice as quickly, is far more effective than twice the penalty admin istered only half as quickly. If we could remove delay from court procedure, we will win more than half the battle toward real traffic law enforcement. The eternal procrastination of our courts, is the bane of the police officer's life and a thoroughgoing nuisance to every* citizen who is so unfortunate as to have to appear in a traffic case. Witnesses many times arc required to spend all day in court only to be told they must return the next day. Naturally they make a mental reservation never again to be an eye-witness to a traffic violation, a drunk driver, or a traffic fatality. Street and Highway Traffic Section 43 There is something else which is quite as destructive as needless delay. Thai is the sromful attitude of some courts toward police officers. This attitude destroys police morale. The court, on the other hand, can exercise a powerful influence in building up morale. ( don't mean that a court should favor the police. Not at all I Sometimes, -by reason of legal restrictions, the court must acquit a defendant whom the court knows is guilty. Under these circumstances the judge could be of immeasurable benefit to the police de partment if he would frankly explain to the officer---privately, if possible--where the of ficer failed to make an air-tight case. Then, eteu though the prosecution lost, the morale of the officer remains intact. Too many courts take a lofty attitude. 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. Of course, it is not so tough for the prose cutor. as a rule. The judge, being a lawyer --but not always a good one--has some ap preciation of the prosecutor's job. I am -orry to say that there is no requirement that judges have any knowledge of traffic prnhlem*. Let tnc quote Harry H. Porter, Chief .luf-ticc of the Municipal Court, of Evam;on; "To the traffic judges of this nation let me say: This institution and this authority 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, must not be delayed, sold nor denied to any tcr?on. upon penalty of your own con science." You know, some courts brag about their ignorance of traffic matters, just as kings u*cd to brag that 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. Some of these courts are funny. The judge makes such absurd sentences as re quiring the violator to visit a morgue, to write an essay, or to lake a generous dose of castor oil. This is about as effective as the old style judge who used to order wifebeaters to kiss their wives every morning, or go to church for a year. This is not traffic law enforcement. Silly sentences do not deter anybody from vio lating traffic rules. 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 has merely aca demic interest as to what part was fine and what part was court costs. Publication of the fine "$1 and costs" looks bad in the local newspaper and carries but slight de terrent value. It is even worse if it reads "$l and costs; costs suspended." Suspended Sentence Evil The police have very properly been given the devil for fixing tickets. Many cities have passed so called anti-fix ordinances. But these ordinances do not, as a rule, touch the courts. It seems to me that Just about the most pernicious form of fixing is the suspended sentence ordinarily practiced by our court-. It is pernicious because it is essentially hypocritical. The court says, in effect--"You arc guilty But I am a pretty good fellow. I'll let you off this time." And then the court judiciously and pompously descends the bench serene in the belief that he has added one more vote when election time comes around. Either a city is going to permit ticket* to be fixed, or n't isn't 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. I think the refusal of a court to convict for traffic violations arising from accidents --taking the attitude thaf the court docs 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 a court to decide that a man shall go free when his actions have resulted in an acci dent that endangered lives and limbs, at the same time punishing another law violator \%hoe action* haven't hurt anybody. 44 29th Xationat 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 functions. Legally, no arrest has been made by the mere issuance ot 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. litis is clone necessar*., vy the police to avoid stuffy court rules. My only reason for calling attention to the }>olicc sins in this respect is to point out this moral: At least police operations arc flexible. All the admitted faults of the j>otice .department can be cured by proper organization, administration, and welltrained personnel. I wonder whctlicr the courts may lie 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 |ulice can and should do a better job. let me ay a word about their bosses: the mayors, councilmen who control the purse strings, police chiefs and traffic commissioners. It is the duty of tliese gentlemen to know that traffic safety is now demanded by evcr\ community. It is their duty to make a care ful study of the problems and then--and this is of paramount importance--to furnish the police departments with sufficient funds to bring their man-power up to par and supply (Item with the proper uols for ade quate enforcement. After this is done, the courts and the police imit assume the bal ance of the burden. Courts vs. Police There is no doubt in my mind that who ever championed the cause of either the courts or police could hurl some very sting ing darts. T this procedure were followed, Mr. and Mrs. Motoring Public, acting as the referee, would be inclined to think less of courts and police than they now do. To make their work effective, it is. necessary that both command the respect and coop eration of the public. The first step in this direction should be a complete understanding and the proper respect by both for the corresponding prob lems, cluiic? and functions of the other. One .should not attempt to run or dictate the affairs of the other. Satisfactory results, however, are largely dependent on the co operation each receives from the other. rw\,,,, rpnrimanrk till* Iralfic officer- he U looking for an opportunity to discharge some offender whose friend might have reached his car. It likewise often happcn*> that the arresting officer will bitterly complain about the court when the defend ant is dismissed, in order to cover up rheir mvn deficiencies in preparing their ease. The Traffic Officer Wltat can we expect of the traffic officer ? 1- 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 time* exercising his authority' for our protection? It is indeed regrettable, but nevertheless true, that we are oftentimes disappointed in our expectations. We find for instance, in some traffic officers the characteristics and qualifications more suited to an uncouth low-brow. We also sometimes find that he is a boogev-man parading the highways scaring, ridiculing and browbeating the motoring public. What right has any traffic officer to greet a motorist, regardless of the violation, by such remarks as, "Where's the fire:*' "Where do you think you arc--on a farm?'* "Who do you think you are--Barney Old field?" "Whats the matter, are you blind?" and similar remarks, perhaps not so mild. I say, he has no right, but he docs have an absolute duly which is printed in almost every police rule-book in the country, to con duct himself as a gentleman at all times. The traffic officer who attempts to browbeat and scare the motorist and wlto uses such language, does more to break down the rc- Strcct <m<i / ftghx*/oy Traffic Section 45 >pect of the motoring public toward traffic im\ enforcement, than any other fact I know in*. When *uch conduct cm the pari 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 will and con tempt on his fellow officers, who are in no way 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 liolicc force for hoodlums, tough guys or {mart 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 bath city and state traffic laws. He should be able to analyze quickly the facts in any traffic situation and present them n-ldligently to the booking officer and police prosecutor. He should be properly schooled in obtaining evidence at the scene. He -hould be able to gather from the witnesses, proper and sufficient statements and he -hould also know how to prepare an intelli gent report. He should be observing, so that at IcaM the important detail*, as to distances, fighting and weather conditions and other kictorc do not escape his attention. Any arresting officer ffiotild not permit his own personal feeling> to influence him in bringing the proper charge T have known officers who for one reason or the other were over-zealous in attempting to give the offender a break, and I likewise have known ivtnccrs who are very solicitous in rubbing it in. Many cases arc 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 ease, the defendant must be proven guilty licyond a reasonable doubt. Our enforcement receives a disastrous Mow 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 enlorcenicnt. Traffic men are sometimes repri manded 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 results. 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 and accident records filed by locations is essen tial for selective enforcement. It should be the aim of every well-rounded traffic law enforcement program to instill in the public a genuine zeal for traffic safety. The poltce arc in a 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; liv 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 lor the 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 arc 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 dem- 46 29th National Safety Congress onstraiing to the children that they are present tor their safety and protection. By showing a real interest in the children and by their demeanor and conduct toward them rhe police will implant in the minds of these future citizens a favorable and lasting im pression of duly constituted authority. Furtltennorc, 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 rhe utmost importance. I am quite fearful that we who arc accustomed to courtroom procedure lose sight 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. Tf they see the dignity of the law upheld and thereby gain a wholesome respect for law and order, our work has been well done. If, on the other hand, they find the court room to be untidy, noisy and disorderly, 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 should do his part He should never slouch down in his chair, especially when testifying. His testimony should be given in a clear 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 allow him self to lose his temper. He should not be vindictive towards the defendant or any witness and above all, he should be 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, prosecutors, police executives, and other safety authorities, was organized in May, 1938, to conduct a nation-wide study of traffic law enforcement procedure. Arthur T. Vanderbilt of Newark, N. J., PastPresident 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 the Sub-Committee on Police. The recommendations of the sub-commit tees cover enforcement practices of the police and of the traffic courts and prose cutors. (The report on traffic courts had already been approved by the American Bar Assn.) Upon conclusion of the report, it was voted to endorse the report of the National Committee on Traffic Law Enforcement. This endorsement was 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 I. 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 <rUniform Vehicle Code" and the "Model Traffic Ordinances" with only regu lations purely local in nature left to local ordinance. However, an exception -hould lx; Street and Highway Traffic Section 47 made where this would result in ousting local courts from jurisdiction to try traffic violations. ; Traffic Courts 3. All courts should treat traffic cases apart from their other business. 4. Special courts for traffic cases arc necessary when the number of 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 oa a state basis with various dis trict courts, and with circuits operating from each district. . 6. Physical courtroom conditions should be improved as to facilities, arrangements, cleanliness, and appearance. 7. The taxing of courts costs as a separate penalty should be eliminated, and the fine assessed in one sum. If costs are included, they should be in a reasonable amount. Violations Bureaus 8. Violations bureaus are to be used only when the number of traffic cases make it impossible for the court to properly dispose of them. 9. The basis for all violations bureaus should be a signed plea of guilty and waiver of trial. 10. Schedules of fines charged at the vio lations bureau are not to be alterable. 11. The bureau should handle the least hazardous violations and should deal with moving offenses only when they respond to treatment outside the courtroom. Major traffic law violations should never be han dled in a violations bureau. 12. Assuming conformity with the recom mended basis for violations bureau juris diction, the paj-ment of fines by mail, prop erly safeguarded, is recommended. 13. Fines assessed at the violations bureau should be in average amounts used by the judge for the same offenses, and should be scaled higher for repeaters. Traffic Judges 14. Traffic judges should recognize the fact that a knowledge of traffic laws, traffic policing and engineering is necessary in addition to a legal background and should atm to obtain an understanding of these factors. 15. Traffic judges should not be selected by local authority or on a localized basts where appointment or election on a wider scale is possible. 16. The selection of alternates for traffic judges should be safeguarded. 17. Where more titan one magistrate is available for the traffic bench, it is recom mended that one judge be 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 be under the supervision of a chief magistrate who should be given regulatory powers. Prosecutors 19. It is recommended that the title "Prosecutor" be eliminated in favor of "Public Attorney" or "Public Solicitors" or a similar term. 20. "Prosecutors" should be assigned to traffic courts for aid in the disposition of cases. 21. Where the information on the ticket or complaint does not afford the prosecutor sufficient detail, the arresting officer should be required to furnish him with an addi tional report. 22. Prosecutors should not be used for the purpose of deciding whether a traffic viola tion should be brought to trial. Defense Counsel 23. Bar associations should interest them selves in ascertaining what the function of a lawyer in the traffic courts should be, and in encouraging the maintenance of that standard. * Traffic Court Procedure 24. Preliminary hearings in minor traffic cases should be eliminated. 25. Summonses and tickets should be re turnable on particular days assigned to of ficers. 26. Where the volume of cases is large the time of appearance should be staggered according to the type of offense. 27. Complaints other than tickets are un necessary and should not be used in traffic cases where the officer witnessed the viola tion 28. Dockets should be kept by the court clerk's office and traffic cases should be kept in a separate docket. -18 29th National Safety Congress 29. Dockets should be in duplicate, the disposition to he marked on the original by the judge at the time of trial. 40. Each defendant should be treated as a single case regardless of the number of charges against him. 41. Appearances should be enforced by the service of warrants through the police de partment and by additional fines. 32. The traffic court judge should be made solely responsible for the granting and use of continuances. 33. Continuances should not be used for the purpose of allowing violators an oppor tunity to obtain the money needed for the fine. Instead, surrender of the offender's license until payment is made is recom mended. The Jury 34. The use of juries in trials for sum mary' or minor traffic offenses should be eliminated. Appeals 35. There is need for the study and re vision of the appellate procedure available to persons convicted of traffic offenses. Conduct of a Traffic Court J6 There is a general need for higher standards of decorum and courtroom pro cedure in traffic case*. Punishing the Traffic Violator 37. Juvenile traffic violators 'should be treated by traffic courts except where a behavior problem ts involved 38. Rigid and set fines (as distinguished from flexible standards) for the various traffic violations are to be discouraged. 39. The utilization of effective mcthoils other than fines and sentences for the pun ishment and treatment of traffic violators, should be encouraged. 40. The primary aim of the traffic court should be to impress defendants, with the need lor traffic law observance rather than to penalize. The Fix 41. Reduction of charges in traffic cases should be a judicial power and exercisable only by the judge. 42. Judges should hold police officer, prosecutor, or both, strictly accountable for deliberate attempts to weaken the case against the defendant. 43. Clerical procedure should be revised for the purpose of permitting audits, allo cating responsibility and providing checks on the handling of cases before they are tried. Records 44. Traffic Judges should be furnished with the traffic record of the defendant by the police department, to be used only after deciding guilt in the present case, for the purpose of assessing the punishment. 45. Drivers* records should be state-wide for maximum effectiveness and made avail able through police departments to traffic courts throughout the state. 46. Traffic courts should keep daily cu mulative records, broken-down by division into the common offenses. and published at least annually. Conviction Reporting 47. Bar associations and other interested groups should interest themselves, where necessary, in the problem of the failure of judges in traffic courts to report convictions as required by state law. * The Justice of the Peace 48. The justice of the peace system is out moded and its plan of organization, in effective tor 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 scats and under the supervision of a chief judge. Qualifications and Supervision 49. * Minimum qualifications should be prescribed for candidates for the office of justice of the peace. 50. The basis governing the number and location of justices of the peace should be revised to allow the existence of a reason able number of officers and an efficient dis tribution. 51. Adequate supervision should be pro vided, and regular inspection* made of all functioning justice courts. Fee System and Salaries 52. The present fee system in use in most slates as a method of remuneration for justices of the peace, should be abolished and replaced by a means of compensation `Recommendation! numbers 49 to 57 are cubject to recommendation number 48. Street ami Highicay Traffic Section 49 not dependent in any manner upon the de cision in the case. 53. Where practical, fair and adequate -alaries 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 1. The principle of specialization should be followed in police organization for traffic control. 2. Traffic divisions, incorporating all functions of traffic control, should be set up in city police departments as major units 01 the organization. 3. All uniformed units of city police de partment* should participate to the greatest lK>**iblc extent in the traffic law enforcement program. 4. Traffic officers should be carefully selected upon the basis of interest in and aptitude for traffic work. 5. Tlie personnel strength of traffic units in any city fhould be proportional to the demand' imposed by local conditions. o. Mom efficient possible use of present available traffic personnel should be sought a* a prerequisite to attempts to secure addi tional per-onnel 7. Traffic alignments should be made at tractive to qualified officers by elimination of unnecessary undesirable aspects of such assignment*. B. Special headquarters units tor func tional >ut*crvision of traffic work should be *ct tip in 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 of recommendations of the headquarters traffic unit. Administration 10. Commanding officers of traffic units should be selected upon the basis of their personal and professional qualifications for such duty. 11. Commanding officers of traffic units should be given rank and authority com mensurate with their responsibilities and the relative importance of the traffic control function., 12. The commanding officer of a traffic division should lave an adeqtate number of commanding officers to insure proper direct supervision of personnel and activities. 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 building, rather than merely rou tine personnel supervision. 15. Detailed performance records should be maintained and studied a* a major step toward effective enforcement administration. Training 16. Recruit training schools should in clude approximate!) 75 hour* of traffic in struction. 17. General in-service school* should in clude approximately 30 hours of traffic in struction. IS. Special in-service course* should be conducted for each traffic unit in city de partments. 19. Traffic instruction should provide at tention to various topics itt proportion to 50 29th National Safety Congress their importance and the needs of the par ticular class being taught. 20. The quality of training must be kept at a high level by careful attention to course content planning, selection of qualified in structors, employment of effective teaching methods, etc 21. Training must be of such character as to "sell" as well as present instructional matter. 22. Training must be used as an aid to. not a substitute for, execution of a sound enforcement program. II. ENFORCEMENT PRACTICES Policies 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: 32. The use of arrest quotas should be avoided; desired levels of enforcement should be considered only in general admin istration of the program. 33. A low level of cnforcftnoit quantity should be raised by gradual steps rather than 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 sonableness and of effectiveness in enforce ment. 34. Police should refrain from traffic fixing; follow practices which do not en courage violators to seek special treatment, and enlist cooperation of other agencies in its elimination. Assignments 25. Enforcement action should be taken on the basis of commission of violations, without undue consideration of such ele ments as intent, degree of hazard, frivolous excuses, etc. 26. Non-resident violators should. gener ally be treated in the same manner as resi dent violators. 27. Tolerances should be granted only when, and to the extent that, 'such action makes possible more efficient, reasonable, and effective enforcement than would "let ter of the law" enforcement 28. The gap between an existing and a smaller desired tolerance should be closed gradually rather than suddenly. - 20. Warnings should be used to augment arrest activity; a printed form should be issued, a copy being retained for filing; re peaters should be prosecuted. 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. 31. Enforcement quantity should be meas ured in terms of convictions, using the "en forcement index," and maintained at the level of maximum effectiveness as deter mined for each jurisdiction on the basis of analysis of the local accident and violation experience. Iack 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 taken to in crease and improve enforcement, as recom mended below; 35. Motorized traffic patrol assignments should be based wholly in cities and insofar as possible in rural areas upon study of acddect records to secure maximum pos sible selectivity as to times, places and viola tions. Selective enforcement should also be applied by other units of city departments. 36. Assignments should be based upon regular periodic studies of those accidentsof a type controllable through enforcement. 37. Arrest records should be analyzed to determine the degree of selectivity in en forcement actually achieved. 38. Drains on patrol strength should be reduced by elimination of special details where the public interest Is not served, and by reduction in other non-patrol duties of motorized officers, particularly school cross ing assignments. Tactics Tactics employed in the execution of the enforcement program have a great bearing on its effectiveness. The following pro-- Street and Highway Traffic Section 51 cedurcs are recommended with respect to leading issues in this regard: 39. Single officer traffic patrol should be maintained to the greatest possible extrat, in the interests of effective control, subject to necessary modification to insure safety of officers. 40. Motorcycles arc most effective in city traffic patrol work. Cities suffering a high accident rate for motorcycle officers can re duce this by improved training and super vision. Cities frequently unable, because of adverse weather, to maintain motorcycle patrol should regularly use a fleet composed of both numbers of cars and motorcycles, maintaining patrol in the former alone when weather conditions require. Automobiles are superior in general for rural highway patrol work and should be used except in areas where the motorcycle's advantages commend its use. . 41. Traffic patrol cars should be clearly designated for close-range identification but not extremely conspicuous. 42. Both open patrolling and semi-con cealment methods should be employed, each to the extent necessary for proper traffic supervision and adequate violator apprehen sion. Complete concealment and other forms of deception should be avoided. 43. Speed violator detection should be ac complished primarily by having patrol offi cers pursue and pace cars. Mechanical speed checking over measured distances should be employed only where it affords the only practicable means of securing needed speed law enforcement 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 of a type not easily controlled by other methods of patrol work. The technique should be selectively employed, with avoid ance of "drive*' aspects or undue disturb ance of normal traffic movement through large scale "blockades." 45. Citizen violation-reporting groups do not effectively augment regular enforcement activities and their creation by the police is not recommended. 46. Chemical intoxication tests should be employed by police as the basis for pros ecuting persons driving under the influence of liquor. 47. Effective enforcement attention must be directed to violators involved in acci dents through more and better investigative work and through prosecution by police rather than citizens insofar as possible. 48. Case preparation and court work of police must be improved to provide closer coordination of the work of all enforcement agencies and more effective enforcement. 49. Warrant service must be improved both as to percentage of service and effi ciency 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 Safcij, State of Iowa, Des Moines, la. Training the Adult Driver By MILDRED Y. McKAY Director, Adult Education, Cleveland Automobile Club, Cleveland, O. Perhaps part of the price we pay for our motor transportation could be eliminated if we spent a little more time, money and effort on the two-bit driver, who is using the bil lion dollar highways, and the thousand dol lar cars so carelessly. Very little has been done directly for the man behind the wheel--the driver himself. 29ih Sational Safety Congress The driver has been given roads, cars, regu lations', and the cooperation of the enforce* ment officials, but he has not been taught to use them properly. It becomes obvious, therefore, that spe cific. as well as general things, must be done for the man who attempts to guide a motor vehicle. Accidents happen singly and to individual drivers, ft is by reaching indi vidual drivers that an effective fight against ?he*e accidents can be waged. Sow. our problem is. just what are some oi the specific things that wc can do to help this man. who drives or intends to drive, do a safer and more intelligent job? The American Automobile Association has been giving this problem a great deal >f thought in the past few years. The result of this, plus a lot of hard work and some money, has resulted in a driver-training pro gram. This program has taken hold very firmly in the high schools, and attention is now being given to the adults who do not have the opportunity to learn about traffic -afciy in school. The aim of adult driver training is not .-.nl>* to teach the driver the actual skill re quired. but to bring to bis attention all the possibilities at his disposal to obtain the maximum pleasure and safety from driving. What can wc do to reach these aims? Of course, the most desirable procedure .vf.tdd be a complete driver training program fur each ne" driver and a retaining proce dure for many old drivers. A Training Program A complete driving program should have three major parts: First, a scries nf driver u-is i< ascertain whether the applicant is pliv-icallv. mentally and emotionally capable of handling a car safely. Once aware of hi* difficulties. the individual can lc taught. Sit many ca5e.-. to compensate for them. Fnr instance, some individuals have a low resist ance to glare When they pass a car at night they may have to drive tor seven seconds-- sometimes even a? long a? 12 second*---be fore their eyes become readjusted and they can again *ee dearly. Such people have a right to know how great a hazard they arc and to realize how necessary it is that they refrain front driving when it would subject them to glare. There is a definite psychological value, too. in the'e tests. They make the new driver more aware of the serious responsi bility he owes society when he exercises the privilege of pilrting a car on a public high way; they impress upon him the fact that part of his responsibility as a driver consists of seeing that he is physically and mentally competent The second part of a complete program is a series of classroom lessons. As much as possible should be taught in the classroom because here a large number can be handled by erne instructor at one time, thus substan tially cutting the costs. In the classroom the student can be taught the; names and posi tions of the various parts of the car, their functions, and the driver's part in control ling the vehicle by means of the levers, pedals, buttons and knobs. There is a three-fold objective in includ ing this kind of a lesson in an adult driver training program. First, to have the driver handle his car more intelligently because of his understanding of it; second, (this is particularly important with the more timid drivers), to give them more confidence. B> understanding what makes a car go, thev lose the feeling that it is some mysterious monster which may break through the traces and do unpredictable things. Third, to give the driver an understanding of the care a car requires. When 49 of the best drivers in the United States were asked to wliat they owed their good records, "Keeping the car in good condition," led the list. There should be an opportunity in the classroom to study laws and ordmance*. Attention should be given to the develop ment of a commendable driver attitude. Courtesy of the road should be discussed thoroughly along with sound driving prac tices. With such a program a new driver would not be permitted to guide an automobile until he has first proved himself to be physi cally capable of handling a car safely and has learned as much as possible in the classroom. Dual-control car.-: should be used for his road lessons and this should not be an obstacle to any group interested in promoting training of this kind. 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 $25, at the very* most, and 11 can be done for less than half of that. Street and Highzcay Traffic Section 53 Ideal)}, the new driver should spend at least two hours \shcre there is no traffic, or. at least, until he has learned the funda mentals of clutch and brake control, shifting vtnd judgment stops. That is, judging the speed and distance so that the car can be brought to a smooth stop on a four inch line. He should be kept away from other drivers until he has learned to start and stop hi* car on a hill without sliding back; hand signals, steering, and road positions of cars about to make turns. This is a very* different procedure from the trial and error method which has been used in the past and, for the most part, is still being used in this so-called enlightened age. A private training field has been opened by the Cleveland Automobile Club. This field was developed from a vacant lot and. although small in size, contains many* of the traffic situations which are to be met on the road. There arc 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, angle parking lines, pedestrian crosswalks, etc. Trained Instructors Needed Koad 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 as instructors or- would think that a no-accident record ov<- a period of time was the only requirement. The most difficult job in conducting a program of this kind is to get good teachers who have a background of good driver training. After instructors arc selected they should l*e given a carefully worked out course of study. After three years of experimentation, detailed lesson plans and corresponding as>ignmtnts in the AAA Sportsmanlike Driv ing Book have been developed. If these as signments cannot be followed by classroom discussion, question sheets can be used as a study guide and as a check of the stu dent's diligence. These question sheets, as they have been developed by the Cleveland Automobile Club, cover the assignment and the road lesson of the day and must be filled out and returned before the next lesson period. The instructor can quickly correct any mistaken idea the student may have before permitting him to progress. Even after a complete training program, lack of experience is bound to play a part in the driver's career for a short period oi time. During this period of formation and setting of driver habits, he Is apt to react a little more slowly than a more experienced driver. His judgment will probably be less accurate, he may take loo much or too little room on a comer, or do other things equally as annoying to the experienced driver and which may* he contributing causes to * an accident. For this reason, while we arc talking about training the driver, let us also teach him to identify* himself for his own and others' welfare. A simple means of identification is a new-driver plate that can be attached cither to the license plate or the bumper of the car. Many hundreds of these arc now in use in Cleveland. There is no patent or copyright on these plates and the proper launching of new-driver plates lor the protection of both old and new drivers in your community* would be a large step towards greater traffic safety and fairer highway usage. Perhaps one of the largest problems in reaching and training the driver is to make the driver, himself, realize the necessity of this training. For so many years driver have been learning by the Jones method, with which you are ail familiar, I am sure, that the idea of taking the time to really study the thing out appalls them. A course of training such as we have Ihci: discussing is being offered in many cities by the motor dubs, on a cost basis. In some states, the state is attempting to take over driver-training and is operating through its slate highway patrols. Three-quarter* 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 ot this kind could fall naturally into the state accident prevention program. The Financial Side Wc have had such a school in Cleveland three years, and each year has seen it grow until now it is enrolling from 150 io 170 students a mouth. Because wc have tin fundwilb which to subsidize such a protect the cost must be borne by the student. Thu need and the desire of the public that >uch training be available i readily seen in thiinstancc: When people are wili ng to pay 54 Z9th Xafional Safety Congress from $15 to $25 to learn to ilrivv 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 buc given the chance, free of charge, or at most, bear only part of the expense. Such a program is costly and people ask, "Bur what can we do if we can't have a 1 lave been asked in the past if drivers who have been carefully and scientifically trained have better driving records than others. We arc 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 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. Theie 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 ami ordinances, the care and upkeep of the car. etc. These courses can be started through your PTA's, Women's clubs, luncheon groups, etc Any civicminded organization can obtain the sendees of a teacher and promote such a course or, better still, interest the local AAA club to work with you. It is true that individuals who have been taught irt an indoor class a period of from one to two and a half years. The police department checked thetr records carefully for these names and found only five violations against them. Three were for light crashing and two for speed ing. Our next task was to take from the state hies, names of persons that matched as to age, sex, occupation, and driving ex perience the 854 taken from our file.-. These people had learned in some maun- other than a scientifically planned cour.-e j 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 have not actually been taught to drive, but they are individuals who arc 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 at a traffic light and driving without a li cense, another for an improper rum at an interaction, and the third for light crashing. If this sample is at all representative of the rest we arc 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 lie reached if a'C are to show a material improvement. The Lest way to attack this problem is by a state-wide safety program. The first step ihould 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 characterises of the residents of the state should be studied to determine ihc most effective ways of reaching the public generally. For example, if it can be de termined that a large percentage of the population are ardent church members this presents ar> ideal means of reaching the people. Tn like manner, if a certain com munity is engaged principally in agriculture, contacts can he made through farm clubs. Every possible means of reaching the driver and pedestrian should be employed. Utah is attempting to reach the rural pedes trian and driver by its stale-wide, standard .safety program. Our organization includes a committee of state department heads known as the Governor's Traffic Safety Co- Street and Highway Traffic Section 55 ordinating Committee, and the group known as the Utah Traffic Safety Council, com posed entirely of private citizens. These two groups cooperate closely. 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. About 70 per cent of Utah's population is grouped in a relatively small area in and surrounding Its three principal cities. The balance of the state is rural, with scattered small cities of 5,000 population or less. While considerable effort has been put forth by state officials and the Council in assist ing the cities in their safety program, we are dealing with the traffic problem on a state wide basis, and endeavoring to reach all drivers and pedestrians. Newspapers Cooperate The |>apers of Salt Lake City have co operated wholeheartedly with the state pro gram. They have stale-wide circulation and their policy of giving traffic safety a prom inent place has been of great benefit. One paper carries a series of blade and white flags to indicate the status of traffic deaths, not only in Salt Lake City, but in the heavy populated areas of the state. This creates community interest to "keep the while flag flying" in their community. Instead of merely relating the fact that a serious accident has occurred, in every in stance possible a diagrammatic picture is printed showing the details of the accident scene, (lie cause of the accident, and how it could have been prevented. Arrows indicate the direction of the cars, or the pedestrian involved. These papers have also been instrumental in urging better accident 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 rather than have their inefficiency played up in the papers. The fact that the leading papers of the state are devoting so much space to the traffic problem, often on front pages and by excellent editorials, has opened the eyes of the country press to this type of news. Now country papers are devoting more space to traffic safety. All of this is having an effect on the driving and walking habits. Local magazines have given publicity to our pro gram. For example, a magazine supported by the farm clubs devotes considerable space to traffic safety every month. Radiograms Effective 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 otir ex perience that the most effective method is through the use of shoTt messages such as radiograms that can be given from the studio when the opportunity presents itself. A series of these messages is furnished weekly to all stations in the state and have been put on the air daily without cost to the Council. Most of the stations use the5e in connection with the regular news broadeasts- The Utah Traffic Safety Council issues a monthly mimeographed safety "News Bulletin." This is a 23-page booklet which outlines the progress of the program and contains statistics and all pertinent informa tion relative to traffic accidents and preven tion work. This is distributed to city and county officials, chairmen of safely committccs of service and civic organizations, >chool superintendents, editors of news papers, church groups, and members of the Safety Council. Much of this material has lieen copied by the country press and is also used by Council members and others as a background for safety talks, and by church and school groups. Traffic safety circulars have been dis tributed. For example, through the coopera tion of the Utah`Liquor Control Commis sion, during the 1939 Christmas holidays each purchaser of a bottle of liquor received a leaflet bearing the following message: "Don't turn holiday cheer into gloom. Drive carefully! "Many serious accidents arc caused by drinking drivers and pedestrians." This apparently was effective, as no fatal accidents involving liquor were experienced during the holiday season. Another very effective contact was ob tained through the cooperation of the Pub lic Welfare Division. Safe Walking rules were mailed out with the relief cheeks. In asmuch as this circular was thus placed in the hands of all persons on relief, a great portion of which were elderly non-drivers, the class most prone to pedestrian accidents, 56 29th Xational Safety Congress it is difficult to overestimate the importance ence in Salt Lake City, which is attended o{ this approach. by representatives of most or the church The State Road Commission has recently sub-divisions, and at the close of each ses adopted the new standard for pavement sion of the conference, church leaders cau marking of "Xo Passing" zones, and in co tion all in attendance to drive and walk with operation with tile Commission, the Council care. 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 he reached. Schools Included Early this year the church cooperated with the principal outdoor advertising com panies and erected HO 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, fn addi 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 Dcs Moines, but we are tion to increased arrests, the State Highway Patrol ha* taken an active part in our cam paign by warning pedestrians found to be violating safe-walking rules. doing this on a state-wide basis, and every The Enforcement Committee of the school child in the state is bringing this Council has stimulated the training program safety message home to dad and mother. for rural traffic officers and has conducted 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 safely talks before meetings'in the larger counties, which were attended by judges, state patrolmen, sheriffs, criy police, service dub members, and citi zens interested in traffic safety. Accident reporting, particularly from rural areas, has- been greatly increased. In thi* connec tion. 5.000 accident reporting poster.*- were prepared and distributed in local police headquarter*, public building*, and filling stations. elementary and high schools, and film strips and motion picture* 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 thi* church and a substantial 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 teacher* contact each home in the ward. Thc*c iearlier* have carried the safety message to iIk* hrmr-v. both verlally and in primed form. The Church loH- M-mi-arwiual confer Driver Licensing Tightened Prior to the existence of the Council, drivers* license examinations were conducted by the Patrol as part of their routine duty, hut. as a result of the study by rvpTv-ematives of the National Safety Council and their effective cooperation and direction, this important function was turned over to a newly created division of tlie Mt*r Vehicle Department. The Xational Safety Council and the American Association of Motor Whirle Ad ministrators conducted an intensive school for drivers* license examiner*. A new filing and record system was adopted, a* wa* the minimum standard examination. In addi tion, a driver's handbook, containing impor tant driving rules and regulation*, wa* pre pared and distributed. The newly trained examiners conduct this rigid examination at all county seats at regular interval* Drivers* license checks os blockade* are conducted at rural locations. We found in Street and Highway Traffic Section 57 many cases where rural drivers had been operating a vehicle for several years without a driver'^ license, and their attitude was such that a license was unnecessary as they liad 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 mind' of all citizens a higher value of their driver's Iicensc- As a part of the new driver licensing pro gram. an individual driver's record was 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 it to his attention. In many instances, a warning letter from the department ha? been all tlrat was necessary, hut so far this year, revocations and suspen sions have increased over 100 per cent, com pared with last year. Traffic Engineering A traffic engineering division has been *ct 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 sult* 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 location?. 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 sidewalk* have been constructed during the pa*t year. One hundred and forty railroad grade crossing.* were equipped with train actuated warning signals, and forty-one little ncd grade crossing* were closed to vehicles. While Utah is fortunate in that the greater portion of its laws are iu conform ance with the Uniform Code, there are mamimportant matters of legislation winch are being considered by the Council. In attempting to reach the rural driver ami pedestrian, several facts should Ik- Write in mind. It should be remembered at all time* that, although practically all of the people favor traffic safety program* and ctidor.sc them heartily, they invariably, forget that they also need the protection afforded by the program. It is our opinion that the entire program must be directed with ihi thought in view, and activities must l>c car ried nut along all lines, and will; <uch in* tensity, that it is impossible for driver* and pedestrians to escape the effect of at least one or more pliascs of the program Everv effort must be made to secure and maintain the support of the pre** and radio; all schools must share their portion of the burden in safety educational work: and church, civic, service, and fraternal or ganization.* must be made to realize that i! e responsibility is partly their* and a portion of their work must be devoted o traffic safetv. Rural traffic officer* mn*t he trained and the program of the Highway PaWol and the local officers must he correlated in a broad plan of selective enforcement. engineering study must be made of all rural traffic accidents and suitable action taken hy 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 man" of traffic; he is the "sick" man of traffic whose equal rights have been scorned in favor of the motorist. Too many pallia tive* have Wen administered the pedestrian while his rich neighbor, the motorist, ha* Wen given even* possible attention. The ills of ihc pedestrian have not been solved hy the clinical observations of safety experts. The patient need* a complete Study, Basically, ihc problem of the adult pe destrian is one of understanding his actions, the reasons for them, isolating ant* future malignant growth, and setting about ear nestly to cure the mental and physical ills. A Recurring Pattern The pedestrian pattern i a recurring one. Year after year Ihc accident figures will War out definite similarities in structure and ss 29th National Safety Congress design. Plot these graphically and the trend will be almost the same for places of occur rence. hours, 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 iti 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 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 arc gen uinely confused by traffic in general. This is a minority 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 ot the block. There arc many brought to light which will give us a clearer insight and understanding of the adult pe destrian accident problem. who dare to cross in congested areas in the same manner they do in their own neighborhood where traffic is lighter. There I believe we have made careful studies are others who cross without even looking and analyses of the how, when and where to see the color of the light; and only factors of the problem; but I do not believe we have even begun to understand the u7ty. With the adult pedestrian there is the after stepping into the street do they be come concerned about oncoming traffic and signals. influence of "competing attentions" when The problem of the adult pedestrian is one he steps off the curb to cross the street. He of reconditioning his habit patterns in traf may be engrossed in his business or per fic. It `obtains, then, that since he cannot sonal problems and his street safety has be taught in the same mamter as children, been subjugated. There is another action his safewalking habits must be made his committed intentionally or unintentionally, evcry<!ay way of living in traffic. which might be called "social facilitation." Thai is, the pedestrian follows others who Public education have started to cross the street in mid block 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. NTany adults cross streets under a "vol untary assumption of risk." Thev knotfe fully well the hazards of street traffic; still, 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 the officer's mind that he must safeguard the they cross where it is most convenient. For them the comer is too many steps removed from the center of the block when their pedestrians, as well as to expedite traffic. It would be best to phrase for the officers throughout the area the words they are to destination may be only directly across the use in cautioning or directing pedestrian street. traffic, thus creating a uniformity of usage, Then, too, there is that group of adults the repetition of which will be more im who practically live in traffic. These are pressed upon the people. the business and professional people who Another approach which can be used by arc constantly on the same streets, encounter the officers would be positive in direction 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 and effect, such as pointing out to violators the examples of saicwalking habits of others. Embarrassment by the officer should be avoided at all limes, for smart-alecky re marks will do more to kill the intent than any other factor, since the public will soon 57rtvf and IHghxvay Traffic Section 59 look with disfavor upon the program. Safety messages are all the more effective it the> have utility value; for example, calendars, book matches, and other advertising novel ties which people will keep, rather than toss a->ide. A general activity of safety consciousness can he brought about by having Boy Scouts distribute cards to erring pedestrians. The ropy 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 he com mon sense, loyalty to community, family dependency, economic, understanding of legal rights or legal aspects of violations resulting in accidents to pedestrians. "Point of need" safety is also the painted message on sidewalks or on the street* at intersections. Posters at intersections and in mid-lffock also serve to arouse *a(ety con sciousness. Pedestrian safely or warning dsns can be attached to poles throughout the business area. Sandwich hoard type of advertising signs on men mingling with pe destrian traffic is also a good idea. Humor can be used advantageously by dressing one of these men in a clown suit and having him pantomime the walking habits of peo ple. \ bell high up on a pole to be rung wltcn k pedestrian jaywalks across the in tersection will attract a great deal of atten tion. Street cars and buses can serve their patrons in a way of pedestrian education by having safety cards at the doors, to re mind people that they should wait on the idcwalk after alighting. Inside car cards can point out the dangers of crossing in front or in back of street cars or buses. On the street car loading platforms safety mes sages can be placed, calling attention to safe ways to leave the platform. Other forms of safety messages which can be ucd in a street car or bus advertisement are the outside dash signs. Street car snipes can lc used on the windows. Printed leaflets can Ik' inserted in the "TAKE OXE' holder* u-ually found inside the cars. \\Y have not reached the stage a* yet wheu safety messages, broadcast by radio, will reach the passengers on their vvnv to and from work and throughout the entire day. Perhaps that day won't be far off. The media F have mentioned tlius far i* intended to reach the masses in general, rather than certain classes specifically. By no means have 1 attempted to cover the entire gamut of ideas which can be used; nor have i discussed the essentials of good newspaper and radio measures. Back of any idea is the proper method of convincing peo ple of certain facts, logically presented in the terminology which they will accept, f refer to the proper wording ot 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. Selective Education When we think of the adult pedestrian problem, let us bear in mind that the field of education is necessary in sections of the city other than congc-twl business area*. Accident spot maps show that most pedes trians are being injured in residential dis tricts. If the analysis discloses that the problem is chiefly one of engineering, then physical safeguards for pedestrians should f>c planned for and installed. In those dis tricts particularly public education will serve to acquaint the people of the proper uses of those engineering facilities provided for them. Selective education must be employed after the pedestrian accident analysts ha* localized the district, action*, time of day, and other factors which point to the trouble. In the residential sections, the message must be taken into the home. Community news papers can editorialize on the actions of pedestrians in specific districts after the facts have been obtained from the traffic engineering department. He can invite the people to express their views on pedestrian safety and measures for assuring greater safety. Perhaps enforcement of speed regu lations is needed in tho*c districts. Com plaints or requests for safeguards are not all of the "crank" type, hut serve as an in dication that safety is on the minds of the people and they have the right -to be heard and the right for such measures. Other selective media- for localized area* may be through community boards of trade, women's clubs, churches, workers tor 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 must be used in a general way. such as billlioards on the sides of neighltorhood stores; 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 the 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 killed on their particular street or district. Wc may take the lesson now in use in Wayne County, Michigan, by having 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 the residents on his streets (if ibis is done in a city) and. when the door is opened, lie could address the woman as Mrs. Martin, and she would feel that the officer has a personal message to her; and he really docs. Alter 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 adult* 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 NOON MEETING October 9. 1910 Luncheon-Business Meeting Presiding: Juot.k H.skrv H. Portkr, General Chairman, Street and Highway Traffic Stclion. Xarionat Safet\ Council. General Chairman Porter explained that report* 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 I.a\v Enforcement. substituting for Arthur T. Vanderbilt, Chairman. Mr. Warren is Spe cial Counsel for the committee. Chief Ray Ashworth oi the San Antonio Police De partment moved that the general meeting confirm the endorsement of the report, which had been made at the Wednesday mominc 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. The Committee on Traffic Accident Rec ords has worked with the National Com mittee on Uniform Traffic Accident Stati-tics and the form recommended by the Sub Committee on Forms is essential!} the Standard. This report was made by Wilbur S. Smith. Chairman. The Committee rec ommended that plans for the preparath/u of a manual on uses of accident record* l*v advanced during the coming year. Chairman Roger L. Morrison of the Committee on Traffic Engineering reported tlmt 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 he, he said. It is desirable to make further sxudic* of selective education. Chairman Carl 1. Kut- Strcct and Highway Traffic Section 61 land stated in reporting for the Committee mi Public Education and Safety Organiza tion. Chairman Phillip B. Gilliam of the Com mittee on Traffic Court Judges and Prose cutors reported that twice as many judges were attending this Congress as in former year*. A report on the banquet For city ami state police, as well as the group sessions for tliem, was made by Chairman Matthew liolger of the Committee on City and State Police. Chairman Walter D. Ladd o the Nom inating Committee presented the slate of officer* for the coming year and officers were elected, a* !i*ted elsewhere in this record- Dr. Miller McClintock, Retiring Vice President for Public Safety, told the meet ing. in hi* talk on `'Organized Traffic Safety," that the Street and Highway Traffic Section has made a substantial con tribution to the adjustment of rapidly changing traffic conditions. Dr. McClintock said the challenge of traffic safety has meant that all who were interested when the sec tion was organized in 1929 are still inter ested and many who have become active since then participate in the affairs of the section. He paid tribute to the industrial members who foresaw the importance of promoting traffic safety and were willing to support it. They were cognizant of the fact that more than 50 per cent of the injuries and deaths of persons engaged in industries occur away from their work, he explained- Tn reviewing the work of the six study committees. Dr. McClintock commended the activities, saying it has brought together in formation and experience* that have helped solve many traffic problem*. WEDNESDAY AFTERNOOX SESSION October 9, 19-10 General Session JcixaE Harky H. l'nwnv. General Chairman. Street and Highway Traffic ^crrson. National Safety Council Progress in Uniform Traffic Legislation By LOUIS R. MORONY Executive Director, American Association of Motor Vehicle Administrators, Washington, D. C. f Editorial Note: Mr. Moronv spoke ex temporaneously. The following is a brief immary of his discussion.) **lu contemplating legislative activity you -hould first analyze the legislation you alr-ady have, the degree of success resulting f'om pre-em legislation, and then determine \vhvii.cr or not new or additional legislation * imperative.** Mr. Moronv emphasized the fact that rup* arc often tempted to agitate legis lation t>ecau*c they feel that they should show *nme activity in that direction. He stressed the point that going to a legislature often va< the last resort, and then he indicated the proper approach to bring about an acceptance of new legislation from the legislature. Mr. Moronv stated' "motor vehicle legis lative advisory committees. *uch a* the one set up in California, arc extremely help ful. They not only arc in the position to make progress in a legislative program h\ assisting in bringing aliout the cnnctmtMit of sound legislation, but they arc equally help ful in preventing the enactment of ohuoxiou* legislation." "The Uniform Code,'* Mr. Morony pointed out. "should be kept in the background and used as a model and not something that might have a tendency to ci>ntu*e ilio-c 62 29th National Safety Congress not familiar with it because of its site, Officials charged with the administration and enforcement of motor vehicle laws should have some latitude, discretion, and author ity in adopting reasonable rules and regula tions 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 the 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 visibility on accidents h been investigated and numerous examples of accident records have been obtained com paring the accident experience before and after changing visibility conditions. Tlus in formation is included in the report Pacts and Recommendations for Night Traffic Safety of 32 per cent m 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 rimes 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 visibility 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 1. Traffic hazards and accident severity only one in three fatal non-pedestrian acci begin to increase at an alarming rate at sun dents. It appears that the pedestrian often down. The fatal accident rate per mile of takes for granted that he is being seen by travel is three rimes as high at night as the motorist when he can see the headlights during the day. These facts present a major of the automobile. Thus he walks confi problem for state, county and city officials dently into the path of the motor vehicle 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 25 per cent An increase 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 dries, are even more important to motorists at night than in the daytime. It is necessary, there- Street and Highway Tragic Section 63 iorc, that they be seen at night well in ad vance of the hazard. To increase their visi bility 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. 8. 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 well-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 confronting 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 ers 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 on 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. Traffic safety lighting continues to demonstrate its value for reducing certain types of accidents. 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 night accidents such improvements should be considered. Where such a condition can be anticipated in new design and construc 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 would 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 AFTERNOOX SESSIOX October 10,1940 Group Session, of City and State Police Presiding: Inspector E. Jack Eawm, 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 A&rmmtive--DAVE SHERMAN Department of State, Lansing, Michigan When .vou hear rhat 32,000 persons are Wiled, and a million injured in motor acci dents Annually, do not visualize merely the Pedestrians arc ignorant of the rights of motorists. They haven't been taught traffic rules. Yet they can be taught, and as nu!e-a-mmute driver of a car sideswiping a truck, hut think equally of the citizen on foot. Traffic survey* show that pedestrians are often actually to blame for their own deaths or injuries. they become car-conscious, 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 The motor vehicle operator, in most states, mendous reduction and present steady de is required to be licensed, to have funda crease in child fatalities could be accom mental knowledge of motor vehicle laws plished through educating children? Yet, vre Mich as speed and traffic regulations, and nnd, as a result of school safety- patrols, of the things he must do tinder certain and safety education in the schools, child conditions. He must prove himself phys fatalities per year have been reduced 10 per ically capable of operating a vehicle, must cent. It this can he done with children it can have proper eyesight, and a good mental and must be done with adults. 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 rule*, speed zones and numerous other safeguards. As a result the motor vehicle operator ha? been brought well under control Properly marked intersections must be provided to diseourage crossing elsewhere. Side-walk signs "crosj-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 Hut what of the pedestrian? You have ployed. The use of educational features -c.-n him crossing streets diagonally, walking and an impartial enforcement of all traffic with his back to traffic and stepping from laws will result in making people addition liehind parked cars. A national survey re- ally safety conscious. vi ah that, even where there arc traffic lights in cities, three out of four pedestrians fail to obey the lights, while 98 per cent of the motorists obey them to the letter. Dr. Gallup, in his recent poll of the en tire nation, revealed that 90 percent of those interviewed were in favor of regulating pedestrian traffic. If the people want it, we Actually three out ox five of the pedestri arc remiss in not taking some step* to in an- killed last year were crossing between sure such regulation. mtere-ctk*ns. and mwt cf them were just I* it lack of Icsislation ? The weakness of three or four feet from the curb, indicating our Judges imposing penalties? The weak 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 ness of our legislators? Is it the weaknes? ot our enforcement agents? It may not be. but the time has arrived when drastic and determined steps must be taken. What happens where pedestrian? are con trolled? Tuscon, Atlanta, and Dallas, arc examined for service were found to be some of the 65 cities that endeavor to regu color-ignorant. Xot having studied or been late pedestrians. What do their record* taught colors they could not name them. show? It was found that the number of My opinion is that the average pedestrian Mexicans killed in Dallas was twice that is car-ignorant. He does not know the of any other nationality. By means of signs -peed at which a car operates, nor the dis in their own language, simple and easy to tance it cover* in a *plit second. understand, and by enforcing the traffic rule* Street and Highway Traffic Section 65 to the letter, Mexican fatalities were cut 58 per cent in one year. What would that mean, gentlemen, if these rules were en forced on a nation-wide 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 observe ordinary rules of safety. I would suggest a pedestrian control ;ecek, observed simultaneously in even7 stale sponsored by the American Asso ciation 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 inter ested that, with your enforcement program, the campaign could not fail Such a reduc tion in pedestrian deaths would result that the nation would be astounded. AregafcVe--CARL JENKINS Department of State* Lansing, Michigan Everything which has been done in the cause of highway safety has been done from the viewpoint of the motorist Engineers have provided him with underpasses, over passes, divided roadways, center lines on highways, highway lighting and efficient signs and signals. The motorist has been taught to make use of these devices, and to obey (he regulations, always with the idea that such use and such obedience will result in his safety. As a pedestrian I have been left to my own devices, and forced to devise the simple philosophy that it is up to me to cross streets and highways as best I can. To help in ray efforts I have had nothing hut the abuse and scorn of the motorist upon whose sacred domain I have presumed to trespass. In short, I must consider myself the forgotten man of this mechanical age. Consider if you 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 bas been used for pedestrian facilities. Consider the scope of the highway lighting program, and place against this the meager amount of public funds which has been devoted to the lighting of intersections where pedestrians are required to cross. Remember too that we are a democracy of nearly 1-10,000,000 people, and that only 30,000,000 people own motor cars. I con tend that, in a democracy, the rights of the majority' are paramount, and that any legis lation which tends to benefit the minority to the detriment of the majority is class legislation and cannot be tolerated. I agree with my opponent's contention that the administrators and legislators are the persons who must correct this situation. I propose, therefore, to bring certain spe cific charges against the motorist, and to suggest a program, which if adopted, will, in my opinioo, bring about a radical re duction in the pedestrian accident rate. I charge you, Mr. Motorist, with con sistent, and habitual viola An of the speed laws, despite the fact that peed too fast for local conditions is a leading cause of accidents. I charge that it is common prac tice to overdrive your headlights, and that it is ordinary for you to drive without that due rcgajrd for the rights and safety of others, which is a provision of all of our traffic laws. I charge too that it ts your custom to violate the right of way granted to pedestrians, and that you ordinarily operate your motor vehicle paying little at tention to children at play on the streets. I charge, in short, that your attitude is, that you arc monarch of all you survey, and nothing can be permitted to interfere with your triumphal progress. Having made these charges against the motorist, I propose flat we present to this arrogant Individual a bill of rights for the pedestrian. Experience has shown that an unpopular law cannot be enforced, and 1 suggest, therefore, that they have been pro vided for the motorist. I recommend the liberal use of the "pedestrian walk" signal which is so easily incorporated in any traffic signal system. I recommend also the adequate illumination of all pedestrian cross ings, and the strict enforcement of parking regulations, particularly one requiring that parked vehicle be not less than 25 feel from an intersection. 66 29th SationaJ Safety Couyrejs Having provided these facilities. I rec ommend that you carry on tor a limited period of time and educational campaign for the purpose of teaching tlie pedestrian to make use of them. Aitcr such cam paign. it will be in order to undertake enforcement of the jedcstnan rcsulatn.n-. and I assure you that, if farihito arc pro* vtdeil. and educational stcjs taken, any at tempt at enforcement will l*c met with hearty cooperation on the part <*f ]>edc-tnans. Second Affirmative--JOHN BOWEN Department of State, Lansing, Michigan You, the pedestrian, have hcen called at mce the "forgotten man" and the problem child of street and highway safely. Nobody loves you. because nolmdv wants to assume responsibility for you- At least two thirds of your dead were adults, fit subject? for statutory regula tion. That would seem to pull you out t the problem child category. It i. highly significant, too. that vour 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 work! by the cultivation of added safety habits. For your walking Iiabits. you alone arc responsible You claim you arc careful. .Some enforcement authorities say you are incorrigible. Well, five of the larger cities have undertaken to test vour 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 as well as against the automobile driver, 45 per cent were -aved from self-destruction in one year. The Gallup |*oll ay* that you want to l*c regulated. An increasing number of imK-rtam cities is commencing to believe it. and--in one form or another--they arc granting vour 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. A? a result of this pioneering experience, v c now know a number of things about you. Mr. Pedestrian, that we hitherto only suspected. We know that in all urban area*. three out of five of vour dead brethren crossed in the middle of the block. Seattle has found out that you do not like to wait for the green light longer than IS seconds: hut you will, if you know that you must. Denver has learned that vmj do not blow up when you are fined for jaywalking after you have been knocked down by an auto mobile: instead you pay up. Connecticut and Washington. I>. C.. have proved that about 90 per cent of you who Income 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 vour point of view. bccau-< 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 wlierc tin* frontiers of liberty are already tautly circumscrilted. But changing fondttuxi? make imperative new technics and new control-. 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 i- inevitable. And with its spread, there must come even to America a wider spread of police power* than the American people have heretofore ever known. That is not to -ay that we. as a nation, arc headed toward* regimenta tion. Any* measure that is for the conserva tion pi human life is not regimentation, it ihumanitarianism. Street and Highway Traffic Section 67 Second Negative--STEVE WHITE Department of State, Lansing, Michigan The of the responsibility for ;*dc'trian accident* lies very* definitely' with :hr motor car driver. Our opponents of the affirmative side have attempted to prove otherwise by the submission of sonic sta tistics gathered from a few cities through out the country where experiments have ftvcmly been made in rigid pedestrian en:'.-r<vmtnt t\mtrary to what our opponents would hai< you liclicvet--the people of this great nation du not stalk the public streets and highway 24 hours a day, seeking to hurl them-elvv.- beneath the wheels of some un-uspcctmg motorist. \\V are all pedestrians by nature. In time* of danger we can stop instantly: ive can reverse from a forward motion; we can turn -harply witltout up-*ctting; w' can jump, -idc-step and side-slip; wc have ma:u"u\crabiliiy that no man-made machine ran ever attain. Yet this maneuverability, marveiuu- a- it is. has been unable to cope o ith the devastating speed and crushing weight of the Juggernaut of the public way----the motor vehicle. < ur opponents have quoted some stat!--tic* on the experience of cities where T-igxJ t*cdc-trian control has been tried. Wc admit that the results show a remarkable drcrca-c in pedestrian fatalities, but we maintain that is not the whole story'. This -amc rigid pedestrian control pre-supposes a ritfid control of drivers and we cannot liave a rigid control of drivers until wc impre-- upon them that the pedestrian also lia> a legal right to the public road, and that wc intend to enforce the granting of the right oi way to pedestrians when they' arc u-inc the public road in a legal man ner. We have al-o heard from our opponents that pedestrians account for about 40 per cent >f the nation's traffic fatalities. While the statement in itself i* correct, it is, at the same lime, highly misleading and sub ject to misinterpretation. From that state ment it would seem that pedestrians were invohed in almost half of the nation's traf fic accidents. On the contrary--and this is the most damning evidence of all against the driver--pedestrians were involved in only 5 per cent of the total motor vehicle acci dents last year in the United States. I quote from the statistics of the National Safety Council which show that there were 5.700, 000 motor vehicle accidents in the United Slates last year; pedestrians were involved in only 270,000. In other words, the pe destrian was able to escape this careless, thoughtless, uncontrolled driver ot 95 per cent of the accidents that drivers had. h is a tribute to the alertness and skill of tin: pedestrian, but it shows that what might be just another accident between two driv er?, with only slight property damage, is usually fatal when the pedestrian is in volved. Surely we need no better proof than this a? to where any accidcnt-proncni-?? lie*. fti the majority of case*, accident sta tistics are obtained from the compuUory reporting of accidents by driver*. These driver reports, in most cases, give the cau-c of the accident from the driver's point of view, but the pedestrian gets no opportunity to state his view*. However, taking the-e accident reports as they stand, and without giving the pedestrian a hearing in mo*t of them, wc find--and I again quote the figure- of the National Safety Council--that nearly one-fourth of the pedestrian death? in tlw nation last year involved pedestrian* who were doing exactly what our opt>oncnt? claim they do not--crossing properly at intersections. Many pedestrian* were -struck down as they* walked or stood on the side walk. Why did not our opponent* tell \mi 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 curred between 6:00 P. M. ^nd 12 mid night--the dark hours. And despite the tact that there are far fewer pedestrians on the public highways during these hours than in daytime---drivers took a little more titan halt their toll during this time. The reason fur this high frequency* after dark i* fount) in the experience of New Jersey during th first year of the compulsory inspection law Almost one-half of the registered vehicle? of the state were rejected on the first in spection localise of mechanical defects, and 6$ 29th Xational Safety Congress 50 per cent of these defects consisted of faulty headlights. i'oth of our opponents have mentioned in glowing terms the recent poll conducted hv the American Institute of Public Opinion. The result is further proof of how rational the pedestrian is. The typical answer given by the average pedestrian was "I am against jay-walking. 1 suppose I do it myself, but it there were strict laws against it. I'd be a lot more careful." But this very rational attitude on the part of the pedestrian pre supposes a rigid control of die driver, and until the driver is brought under control, n rigid pedestrian law will be unenforceable. We have heard of the pedestrian who >tcp? 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 destrian walked has many times been parked on the wrong side of the street, or double parked, or quite possibly parked in a way that obstructed a crosswalk. Yet. because a pedestrian walked iroot behind it, he is charged with attempted suicide, and the driver of the illegally parked car docs not enter the picture. Our opponents demand to know what the pedestrian knows about stopping distances and the physical law's of motion. I demand to know* what the average driver knows about stopping distances. By far. the great majority of drivers arrested for speeding, frankly admit, ignorance of their speed. They were not looking at the speedometer! Despite the fact that the driver with a few drinks is more of a menace on the road than is the inebriated driver, m many 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 scons proof of competence. These facts that 1 have presented can lead to only one conclusion! That the motorist is responsible for the vast ma jority of pedestrian accidents! Practical Pedestrian Enforcement in States By CAPTAIN T. N. BOATE Chief, Traffic Division, Pennsylvania Motor Police, Harrisburg. Penn. It should be understood at the outset that "enforcement" does not necessarily mean ar rest and punishment for some violation of the Jaw. The more sensible interpretation of 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. Solution of this overwhelming problem by pedestrian enforcement, which may be classed as. direct police action against an offender, education in all of its ramifications, and highway construction and design, has been blocked by age-old principles involving the psychological factor of "right of way." It is argued that people travelled on foot over highways as a matter of right, long before the advent of the automobile. Travel by this means is still both necessary and desirable. Consequently, there is a natural inclination by the pedestrian to move about entirely free of restraint, resenting and disobeying, either willfully or as a matter of indifference, all tuIcs of conduct promulgated for his safety. With this land of a background the fac tors comprising our problem seem to tic: 1. Rapid increase of truck and automobile traffic by the millions. 2. Increased speed of motor vehicle* 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 his rights, is slowly resulting in a careless disregard of the potential danger of expo sure to motor traffic* For relief from the devastating conse quences resulting from thi condition the police are looked to for a maim* role. Arc police forces generally prepared to meet this problem? Have the)' met the prevailing conditions, as the principal agency for pro tection of the public, 'squarely? And. fi nally, have thej' done something about it that has produced results? The record speaks for itself. While there have lccn great and productive efforts put forth, by police forces throughout the nation, frankly, there is an abundance of room for improvement. So, Street and Highway Traffic Section 69 to this- brief discussion, let us look to our weaknesses and see what can be done for improvement. 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 comparison by pointing the finger at other municipalities with records as bad, or worse, than your own. Battles have never been won by finding excuses for reverses, or, as we have beard 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 making available a sound plan of action which, when tried and proven, shall not be deviated from, excepting lor improvement gleaned front experience, until our objective of proper pedestrian regulation has been achieved A Cooperative Plan My coorcption of such a plan revolves around cooperative efforts and sound basic planning in which every city and state will immediately undertake a comprehensive pro gram of pedestrian accident prevention. With the motor vehicle accident fatality' experi ence being 50 per cent and upwards pedes trian. the highway safety program must be largely centered around this all important factor. We are told that, in general, the pe destrian problem is more acute in cities than in rural areas. This, however, by no meant lessens tbe 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 the initiative by advocating a more comprehensive pedestrian protective pro gram. Statistics. Devise and maintain a system of gathering accident case history quickly. Information designated to form the basis for police action, as in all other lines of activity, must be not only accurate but fresh. Tbe remedy indicated by analysis of statistical data must be applied quickly to be effective. Accident Analysis. Make a thorough analysts of all motor vehicle accident fatali ties and distribute such information to police forces throughout the state. Such an analy sis should completely localize the informa tion made available. I-ocal police officials may be interested in what the other fellow is doing but they are more particularly con cerned with their own problem*. Coordination of State and City PoliceForces. In the solution of the pedestrian problem, coordination of alt 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 other organizations interested in highway safety, to prevail upon local authorities to cooperate by proriding increased concentration on pe destrian protection and general traffic law enforcement. Selective Patrol. To utilize accident in formation fully as a basis for highway patrol activity', it is necessary to study careful!) the accident experience on any given high way anti first arrive at the number of hours of daily coverage required to provide what may be termed "ideal police coverage." This haring been done, assignment of officers to cover such highway bv patrol in four or eight hour shifts as a permanent detail svill bring the most satisfactory results. Under this system responsibility for proper polic ing m* sections ol highway found to have a high accident density may be delegated to particular officers. Since it is plain that such officers have been given the responsi bility of accident prevention on their patrol, they will put forth their best effort*. This i* 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 cipal conditions: The intoxicated pedestrian: the pedestrian who walks with traffic; the pedestrian walking along highways during hours of darkness without a light and wear ing dark clothing; and school children walk ing along the highway white en route to and from school*. The rural police officer may afford proper protection for such pedestrians by taking into custody persons found to be walking along highways while intoxicated and to detain them until sober in the interest of their own safety, to urge all persons to walk toward traffic when walking along a public highway, to educate pedestrians walk ing oil highways during hours of darknesand to lie present in the vicinity u` -whoolduring hour* when children are curoute tu and from their home*. In this cuomvtion it would not seem far ami<> for the police ofn- 70 JV/ff A ationul Safety Congress cer io v*u homo on patrol and drop irt tin Publicity. On the theory that the acci school assemblies' tor the purpose of jkiimbtg out. specifically, existing hazard* in the immediate neighborhood and to discus* those things which are important for pedes trians to know. dent problem is essential!* a local one, it is believed that studies made of traffic condi tions for the purpose of effecting a reduc tion in the accident den-ity should also Ia 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 hy persons under the influence nf intoxi cating liquors. This condilion may. of course, he proceeded against without specific author ity in the vehicle code. It is Mievcd, how ever. that tlic mere fact such a prohibition i* contained in the traffic law- curtailment would Ih: effective, to some extent at least, without enforcement. Likewise die manner i walking on highways and other require ments for pedestrians should also he spe news releases. Studies of this nature con fined to county areas have proved to lie nf wide public interest and readily accepted by local newspapers. When a traffic officer i* assigned to study condition* in any particu lar area the purpose of such study should be immediately publicized, as well a* the results and Tccommendatnms. This WHJ make the public aware ot the hazards on highways in the immediate vicinity of their residence? and should have much to do with bringing about increased caution when driving ou highway.- found in f* tmu-unlk hazardous. cifically covered by traffic law- if definite action is expected to he obtained uniformly throughout the state. Legislation of this nature is often objected to on grounds ot regimentation, arguments being advanced that pedestrians shoukl he given precedence over vehicular traffic and that their ancient riultt ot free movement should not be interivred with. This feeling on the part of >ome t-*"plr i- well illustrated hy the age croup accident fatality record from which we find that tin pedestrian over 50 \rar- of age ?* "lOueiuly the victim of motor whicle acci dent-. Thu*, stales which haw not already dma* -o will unquestionably on this basi* eventually adopt legislation along these lines and it is believed that the *oom*r tins is cff>.vud the more quickly our program for j*tde-irians will reach a state where a sub-'.aminl decrease in the death toll will be reached. Engineering. WV have round that the -.bee ran effectively co-operate with the trank engineering division of die depart ment *-f highways by being constantly on the alert and making available the result oi stud ies of highway conditions and bringing'about Accident Facts. The police cannot effec tively participate in a highway accident pre vention program unless they have complete information on the current experience frnu* which the "how. when, where and whv" of accidents that are happening may Ik- deter mined. In tills re*|k-ct monthly or yearly rcport.* of accident concentration arc brlpfuJ in the control of highway patrol coverage and formulation of -elective enforcement policies if such iitfom:aii>m i* reasonably well localized or rc-trictcd to area- -ovcrd by police ub*taiion-. This i* true Is-eansc accident <*.\i>crencc of thi* nature, .mbracing a? it doe* -nine- -tnddancc* of regularity, traffic control and regulation- m.v I* planned in advance b> the police to imit such conditions. On !:- i.tbrr hand, to com bat eltcctivik elunic condition* f a hazardous nature, defdid information im mediately available i- ab-olmely necessary as a prerequisite to applying the projurr remedy in time to prevent tlic di sch.pmcni of a con dition. which ha* already re-ultcd in <>m r two fatalities, from In-oiTiing a major dis aster. the erection of warning signs, designation of The need for a rapid ami more compleir pedestrian crosswalk? and inanimation of -ection> of highway* liaving a high pedes trian traffic density and where otherwise found to be most needed. In this respect it believed that states which include in their triform sign system a sign directing pedes trian* to walk against traffic have effec tively controlled this phase of pedestrian rruulatron on rural highways. reporting of accidents has been met and s-ulved by some police forces, through the medium ot a \-tvm of reporting within the police force. This embrace? a semi-weekly or weekly check-up on key sources of infor mation to obtain essential accident informa tion for immediate transmittal to a central collecting agency. Here the accidents arc analyzed by a -raff ni experienced officer*. Street and Highway Traffic Section 71 who. in addition to being qualified to fully 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 iorccs, sher iffs. coroners, agencies for gathering vital statistic*. >tate>' attorneys and newspaper*. 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 can 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 tact?. Practical Pedestrian Enforcement in Cities By INSPECTOR B. R. CALDWELL Administrative Division, Los Angeles Police Department, Los Angeles. Cal. Discussion ot this subject seem* to fall into two parts: \Vfliat we hove in the way .f pedestrian enforcement, and what we should hove, as determined in part from a rvctsit survey made ot our "walking dead." We have, in Los Angeles, a paradoxical -nnation. I: i* alleged on the one hand that we cn*>y a reputation for pedestrian traffic jaw observance. Yet. an outlandish and int-\i*n*ah|r number of walker* arc killed each year--with little abatement in sight. A brief hi-rory of two main factors in this observ ance ::-ay explain the paradox. One factor the pedestrian obedience of retaliatory devi.v-. The other is the observance by m.rori-t* oi die pedestrians' midbloek cross walk privilege?, in our central traffic dis trict A* long ago n 1921. an ordinance Uvantc effective requiring traffic signal observance hv the pedestrian. Los Angeles did not make the mistake of attempting immediate application of such a provision without *nmv preparation. A thorough painstaking publicity campaign was conducted. A strong ap)*-al was made to public sportsmanship, together with reference to possible ridicule. Every human factor was given considera tion. Then, when the effective date for the legislation came, the publicity was intensi fied. Offenders found their pictures in the morning paper? depicting them in some un graceful or dangerous situation: some classic examples of idiotic facial expres sions. ridiculous, absurd and undignified postures, and stupid walking habits were printed. Amusing cartoons were published of the unsafe practices and the personalities involved. Thus the public was shamed, ca joled and jollied into reception of a restric tion which might very' easily have caused rebellion. There was almo.'t immediate and universal compliance with the new regula tion. A Bad Experience A neighboring city recently attempted to enforce a jaywalking ordinance which had been in existence since 1926. Xo warning was given and no preparation wn. made. The unfortunate officials of that city soon had a "sit-down** strike on their hand*! Pctlcstnans sat in the middle of the street* and defied motorists and officers to do any thing about it! Thoc cited gave fictitious names and addresses, and police effort* came tn naught. In Los Angclc?. however, after the first success, the full effect of the new measure* was guaranteed liy constant vigilance coupled with enforcement. Intersection offi cers are frequently reminded of this phase of traffic control. Xow. when Tt pedestrian proceeds across an intersection against the signal, he meets with-a shriek from a police whistle; a warning signal from the officer: scowl* and horn blasts from the motorist* an<l surprised stares from other pedestrians. One result has hem that during 1939. it wa- found nccc-*arv tr> arrest hut 73 per sons for such violations. Those arrest* were for the most part by citations. It is sincerely believed that enforcement of this kind i* 72 29th National Safety Congress doomed to instant failure in the absence ot carefully laid plans for developing a favor able public opinion or sentiment or consen 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 midbtock, whenever he wished to cross the street. Recognizing a human factor, mid adult victims did not. Almost 100 per cent of those killed were feeble, and dressed in the darkest clothing. 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 year* of age and over. block crosswalks were established and pub A weekly radio program is conducted in licity was directed chiefly to the motorist the manner of an open forum whereby lis respecting his duties at such locations. The tener participation is encouraged. A consid walkers were not ignored, however. An erable portion is utilized in discussing the appeal was made to them not to arbitrarily pedestrian problem. 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 intersections, we find that the death rate was negligible. But let us look briefly at the other side of our paradox. Where there is no carry-over or officer guidance; or where there is a prevalence of signal disobedience, an old but effective de 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 aud 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 killed 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 Some years ago, and up 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 county. occurred, however, after dark when the "Whal 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 been shut down. way of pedestrian enforcement. At the out To go on with some of the devices em set, 1 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 his habits than we now know. We the crest of a curved, paved double hill near have already amassed a great fund of in grade school. The youngsters were sur formation about the driver, but little has viving because they used the tunnel. The been discovered about the man on foot. A Street and Highway Traffic Section 73 beginning in this direction has been made in Los Angeles. National records indicate that the first tew steps taken by the pedestrian into the street are the most dangerous, yet our recent survey indicates that he had reached an average of better than 23 feet from the curb before being struck down. This occurred on a street with an average width of 56.5 iett This makes us wonder about self serving reports by drivers to the effect that the victim loomed op in front of them sud denly from behind a parked car 1 We found further that we had a composite pedestrian about 52 years of age crossing or walking after dark on a composite street paved with asphaltic cement or asphalt in 87 per cent of the cases: the kind of pavement which has a very low light reflectkm factor; lighting was uniform!}' poor after dark. He was, in 96 per cent of the cases, wearing dark or medium dark clothing. In a large proportion of the cases, he was killed in his own neighborhood, where he should have been familiar with all the potential hazards. In nearly three out of five cases, he was struck at an intersection, and in a business district. In but 8.7 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. With these and many other suspected fac tors in mind what might we conclude as to enforcement possibilities in the future? The average Los Angeles shopper comes into the central traffic district and obeys signals and motorists yield 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 section with the assurance that his right of way will be yielded by the motorists. They did so when he was downtown--why not here? There is a carry-over of this understand ing and action into the outlying areas. The driver, when approaching an intersection seems to expect to be allowed a free pas sage. Having seen pedestrians use cross walks in other areas, be does not expect to find a walker suddenly In front of him in the middle of the block. A recent check of average speeds in the above-mentioned two and one-half mile area shows that there Is a variation of from 13.5 miles per hour to about 22 miles per hour. This would seem to indicate that it is not speed alone which is killing our pedestrians. Furthermore, it would not seem altogether feasible to use numerous officers for speed enforcement in this area where speed was not so great a factor. Examination oi the reports shows that violation of the pedestrian right of way is most often the principal factor. This jibes very closely with the study of the points of impact which showed that the pedestrian was, in three out ot five cases, in or near the center of the street. With this thought in mind, a check was made of citation ex perience. It was found, as is so often the case, that most of the enforcement was for driving through stop signs, running stop signals, and speed. Running through a boulevard stop, for example, was respon sible for a very small percentage of colli sions in 1939. Compared with the number of convictions for such a violation we found a ridiculous enforccment index. Driver Responsibility 1 recommend that more attention be given the matter of yielding the right of way to pedestrians. \Vc 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 200 or 300 per week. I contend that simply to raise the over-alt enforcement index without regard for the fatal violation is evading the issue and our responsibility. After all, we must admit that the pedestrian docs 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 docs not compensate for his own limitations. Therefore, it is .up to us to afford him some measure of safety by more stringently con trolling the drivers at those fatal points in dicated. Next, high collision frequency'arter dark shows the need for more men at that time, Many traffic officers at present assigned dur ing the day to intersections and to the en forcement of parking regulations could be reassigned to four-man roving patrols to attend to the hazardous left-turn move ments, failure to give hand signals, and right of way violations. A third recommendation would be more 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 full view, those streets carrying heav>' 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 ra<i- . 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 longvfew 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 highwav "blackouts.** Much money is spent to make roads smooth and to remove manv hazards due to curves, but a mere pittance expended to enahlc highway users to sec a clear way ahead. Much of the former ob jection to expensive lighting installations has come because the maior part of the costs would accrue to property fronting the high ways co affected. Studies show, however, that oar-milcagc on these fatal streets U extremely high, nnd that the u*er are not necessarily indigenous to the district. Where such installations have been made in Los Angeles, there was a drop in collisions of 78 per cent, and a 92 per cent drop in fatal ities. A seventh recommendation relate* 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 back 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 kind of traffic regulation training did he have prior to being struck? Did he come from a small town or large metro politan city? Jt might even be significant to discover his work and play habits; his physical agility-; his mental condition; his occupation; his economic status and other factors tending tb preoccupation and inat tention. In coriclusion I should like to present the matter of popular misconceptions and propa ganda disseminated by well-meaning but perhaps ill-advised authorities. Wc have found many persons who believe that ve hicles can "stop on a dime.*' that certain tires arc more effective than others, that certain brakes are superior, and other glow ing references to miraculous performances. Ahtding faith of the pedestrian in these alleged abilities i, 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 state police group sessions was conducted by Professor J. L. Lingo, Director of Pub lic Safety Institute, Purdue University- * The program consisted of two-minutc an swers to practical enforcement questions by a hoard of officials comprised of the fol lowing : H. W. Johnson, Superintendent of the ^Traffic and Safety Division. Kansas City Police Department. Lieut. Franklin M. Kreml, Director of the Safety Division of the International Association of Chiefs of Police. Inspector B. R. Caldwell, Administration Division. Police Department, Los Angelo*. California. Daniel G. Reynolds, Director of Public Safety, Miami, Florida. Lieut. Kreml was asked "Should all acci dents, even the most minor when there is no damage, no injury*, and apparently no *erious violation be reported? This question asked with regard to time lost by officer of Street and Highway Traffic Sectio, 75 accident bureau recording such accidents when no apparent useful information can be obtained from such reports/' Lieut. Kreml answered "Ideall}-, all acci dents where there is damage or injury, rc;jardlc> of the degree of severity, should t*c 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 and 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 terion of tlw importance or significance ot the accident and drawing such a line tends to discourage the reporting of many acci dents even above the minimum level. It i* thus pood 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 ol accidents will be reported/' Director Reynolds was asked "Should not the arrest and conviction of a drunken pedc-lrian, when he is obviously jeopardiz ing himself, be considered a traffic arrest and conviction and be included when cal culating the enforcement index?*' Director Reynolds answered "Of course in calculating the enforcement index, it standard practice to count moving violations only but it would be possible for a drunken jxxicstrian to be a hazard without moving; that is. he could be lying down in the street/' Inspector Caldwell was asked the ques tion "What are your suggestions for a radio safety program? Do you think three minutes or fifteen minutes is more effec tive?" Inspector Caldwell reminded the group that safety programs on the radio are in competition with other types of programs. He advised i "Try to use device on air which will stimulate listeners to some kind of action, such as writing. telephoning, or tele graphing ; try to obtain time on large station at a favorable hour; avoid inane platitudes; make script spontaneous, natural, reasonable and avoid abstractions; supply known meas urements, actions and operations; avoid time conflict with popular comic program; avoid dramatic programs unless fully equipped ior production in competition with best on the air; use interviews sparingly; inject human clement by using names of people writing for information, safety materia), or reporting some condition." 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. 2. "Step On the Gas 1"--interviews with racing drivers; their lives and ideas on traffic law and safe-driving practices. i. "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 lor mate rial and commercial organization drivers as competitors. 6. "Voice of Safety"--listener queries read and answered; short dramatizations of local traffic incidents. 7. "Spot Announcements"--One minute announcements sent to stations just before some outstanding date, holiday, or public event. (Christmas, Armistice Day, Labor Day, etc.) 8. "Traffic Tribunal"--Listeners* questions, complaints, suggestions and requests read and answered over air. Senes as clearing house for "pet-peeves," hazardous locations and conditions. Latter referred to proper agency for action. Copies of local laws on traffic offered free to anyone taking trouble to write. Inspector Caldwell added: "The objec tives of police agencies engaged in radio activity seems to be two-fold. One, to in crease the amount of attention devoted by average listeners to traffic problems; and two, to `sell' police service. In general, any device which will serve to achieve those objectives should be valuable where facili ties exist for such activity. Listeners may not remember specific items discussed on such radio programs but they do tend to retain a favorable impression toward a progressive, continuous progrant of traffic safety. 76 29th A ationvl Safety Congress "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 contact wilh major key network outlet*, This same principle applies wilh rc*pert to the time of day and the day of ihr week Tbce factors, of course, vary mi different localities. Daytime programs might better be directed toward tbe women t the cuiiwig?-; while evening broadcasts might hr more general m appeal. 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. Krcml was banded the question: "Should every* violator of any regulation he Miromoncd 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 "Aadimer particignuua u> ptrlttp> the place, tlrc principle of selective enforcement, taduaW device It >uctr program generally recognized as highly desirable, *umulatc* Jinewr* lo *4< qtx>tkms by arbitrarily requires a certain degree of con mail; to kcud request* iur pamphlets post centration on leading violations at the er*. copies of laws etc., too have been able times and places of their most frequent 10 overcome a natural inertia ammg listen ootmitisMon in connection with acci ers. U audiences go *o far a* to make dents to the partial exclusion of other less written rejHj*tto. that \ct> activity on serious aspects of the violation problem. ihfcif part encourage.* *till further co Secondly, some degree of tolerance above operation.'* ihe letter of the law is frequently desirable in commenting on the length of program that 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 "Tlic shorter or 'spot' announcement type in the interest of making enforcement ade quately reasonable and permitting officers to be certain of the commission oi the vio lation. Thirdly, it is also a sound policy* where enforcement has nol in tbe past been very strict to gradually tighten up control, rather titan to suddenly* switch to a policy of adhering to the letter of the law. Finally, exigence 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 ui program demands expert writing. They arc often served adequately by policies which 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 might fall short of its objective. Further, control is not always possible; that Et, when `spots' arc submitted to stations, there is no guaran tee as io when they will be used. On the other hand, if a large key station would 'plug* your announcement day after day immediately following a very popular news broadcast or 'strip* program, the shorter type of program would coooczvabSy he much more effective than the looser infor mational type. Another far** *> tfegt 'Jtftet' announcement tune ha* a h*gh er aiTr-ial value and room stxtw* hftwr all pifgjlgfchi time sold om. at of day or irigjbt ** ftwuratfe tian ` "All m all, t*cn. tutiaaihfinit ngj-^urr; depart somewhat from the theoretical prin ciple of letter-of-tlic-law 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 upper age groups can lose their hearing or eyesight in a short lime. In order to obtain a start on this re-examina tion of drivers it is suggested that they* be re-e-raj. itotd every three years. Another ugsr*TK*t and one that we are trying om in Miami is that a driver after be reaches a certain age must be examined every year when be applies for renewal of itemsc. If tbi* apffCed against all the age group*, a majority of ocr citizens might think thi too k*r+h to we are trying it only against tbr alder drivers." Street and Highway Traffic Section 77 Lieut. Krcml was asked it he felt that wa> x> apparent that official action could the same basic enforcement methods are not be neglected. equally effective io both city and state police work. He said. "Generally speaking, tbe same baric enforcement methods are equally ef fective in both city aod state police work, aitljough some variation in detail and execu tion of enforcement activities is often neces sary. For example, the same degree of specializarica of traffic law enforcement pa trol work i* not possible in a state police deportment where every man must do prac tically every type of police work. In city departments, a special group of traffic patrol officer* can be created. This requites some tariatioe m selective enforcement planning and cxecutiott. However, with respect to >uch general matters as enforcement poii- cie>. ucttcs- of patrol apprehension and securemmt of evidence, the general principle of selective forcement, etc., the same en forcement methods will apply. It is a mat ter of slight variation as between cities and states, with the same general principles and objectives m mind." "It was also learned that former habits of snatching a few mtoutes of sleep on a qmet side street or visiting for an unusual length of time in questionable places, could not be done without exposure. This alone was a decided improvement in Los Angeles and is felt to be justified; sufficiently so as to encourage making oorly all patrol cars distinctive- "Thc chief value of distinctive colored cars is largely psychological and Part 2 of this question can be answered in this respect. The full psychological value is achieved only when tbe impression is created that a far greater number of machines are on patrol than are actually available: While cars are considered excellent in this respect. In ooe city* where less than thirty welt marked automobiles were being utilized for traffic patrol, an inquiry was directed to several organizations by a member of an 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 should police traffic cars be marked? What about white cars?* from 75 to 500. "Action may be taken by officers in well marked automobiles and all passing driver* Inspector Caldwell: "Police traffic cars, U are conscious of the event. Where the same used lor the primary purpose of traffic law enforcement, should be marked in a full distinctive manner. The word 'distinctive' Should not be confused with the word `con spicuous* allhough a conspicuously marked car for traffic enforcement would not be action is taken by officers in an incon spicuous car, it will probably escape notice. Concentration of the distinctive type of vehicles for test purposes on certain streets has resulted in extreme favor of the well marked vehicle. In cities with a tremendous objectionable. "It is desirable, at times, to have incon spicuous or non-distinctivc marked auto mobiles employed in traffic patrol for defi nite and specific purposes. - not entirely re lated to traffic enforcement regulation*. Where the purpose of the Utter is primary, any means used to call attention to the u*c area, it is believed the need for distinctive colored automobiles is even greater (ban in those cities with a concentrated area. "In some places a reduction in the crime rate has followed marking autos quickly recognizable as a police vehicle... One reason being the ready volunteering of essential information by the public of the automobile is advisable. Is some states, both officers and their motor equip ment used primarily for traffic law enforce ment arc required by taw to be distinctive in appearance, and here there t* do choice. In many places where enforcement appeared Lieut Krcml: "I don't believe any arbi trary answer can be given on the question of the desirable degree of conspicuousness in traffic police cars. The idea of very* con spicuous cars is supported by the principle chat the presence of police has in itself a to be unu-uaBy lax. a w* dtacoverrd that deterrent effect on violators, and that the uniformed patrol officer*. plum. wcudurard automobile*. we** s.i ij>htw< *0 nener of violatiotts is thew actual ytwaitr Later, when fwtiol nfiwi *rt Mtsaftatf m linctjrrH ftluw4 ev*. fuel *i urufort more conspicuous the car is, the more read ily drivers will recognize its presence. How ever. tins deterrent effect is necessarily pro portional in effectiveness to the number of patrol amts and the consequent frequency* 7S 29th Xational Safety Congress "ith which driver* arc under -ujH.Tvi.Hjon. If, as is generally true today, there art- in an area so few i*atro1 cars that the average motorist is rarely under direct police super vision. there i- serious question as to the value of the deterrent created by the pres ence of the police. I-teut Kreml added: "Certainly it would he desirable to have enough patrol units to prevent violations without the necessity of a large volume of arre-ts. 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 and this is possible only with a less conspicuous car than one which is all white or otherwise ,-imilarlv made conspicuous to an extreme degree. At the same time, it is desirahlc that police car* be so marked as to be rec ognizable at close range, <o that there may he no question as to the identity of otficerwhen Mopping a car. "Person- seeing a police car at close range should 1m? able to recognize it and thus be impressed with the fact that there i patrol supervision. Therefore, 1 l>ehcvc it desirable that a compromise be followed in marking police cars by marking them so that they arc 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 sign* on cars was practical. He answered: "l believe the foregoing comments provide an adequate answer. A car thu? marked may be regarded in the clas* of quite conspicuous police vehicles and the practice is justified only if sufficient number of car- are available to keep traffic under almost constant super vision.** Inspector Caldwell was asked for hi.opinion and he said "I believe Chicago's use !* neon signs is entirely practical, if meant to describe the car as an official jolice vehicle.** Presithiu}: THURSDAY .MORNING HUSSION October 10. 1940 Group Session of Traffic Court Judges and Prosecutors John (itTKNKCHT. Municipal Court, Chicago. Relation of the Pedestrian and the Driver By JUDGE BEN S. DAVISON Corporation Court. Houston, Texas There must lx a complete understanding and spirit *t cooperation between the pe destrian and the driver, if there is to be a reduction in the heavy toll taken each year in auto-pedesirian accident* Why do jx-ople jaywalk? Because they ihink they can save 30 seconds, and because they think they are -man enough to take care of themselves. Other people may get hurt crossing between intersection*, but not they! There's your answer to why pedestrians arc killed and injured being out in a traffic -tream when* tliey have no right to be, and where they know they have no right to be. It is not as though all these people were ig norant natives from the wild* of an African jungle who had never seen an automobile lieiurc. 1t they were, there might 1>e some 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. I hold no brief for either motorist or pedestrian. Where either is wrong, f shall there place the blame. We do have accident*, entirely too many of them, between cars and iK-dcstrians in which drivers arc to Street and Highway Traffic Section 79 oiitme. nu! isn't it a fact that we have a tendency, through mass thinking, to blame, nil the automobile* tor all such mishaps? A million reader* of a million newspapers shiver with horror a> they read a news item of another pedestrian being killed on a city street, ami practically every one of them automatically picture* the driver of the car as a Mepbistophele* with a pair of horns and a forked tail driving hi* Chariot of Dis aster. A* a judge-. I know better. In the first place, virtually no motorist wilfully runs down a pedestrian. In the second place, the average driver ol*crvc* the rules of the road. Somewhere there are usually con tributing factor* on the pedestrian's part which throw a portion of his own action* into die nuking of an accident. Some Heedless Walkers For instance, in spite of repeated warn ing. caution*, admonition*, urges and besecchmcnt* by the authorities, by the press, by the radio to cross crossings safely--and to remain on the sidewalk until the green light ila-he*. there are still hundreds of thousand* of our highly intelligent citizens who teeter-totter on the edges of the curb or -land boldly on the street surface itself practically daring a motorist making a right or left hand turn to touch them! Here it distinctly a defiance of both 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. Vet pedestrians do these thing*, and then wonder how on earth they wind up tn the hospital. No White-wash Brush I don't warn to preach onc-sidedlv against the pedestrian, and bearing aloft a white wash brush tor 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 arc two sides to this question of auto pedestrian fatalities. The individual hears of this case and learns of that, he reads about this one, and ilutt one, but he does not sit all day long hearing the evidence and the fact*, as do we judges. So I feel I am privileged to picturize from them to you a- l get them-- case* alter eases and incident after incident. But it doesn't do any good t<* tell the whole world aliout these facts and figure* unless we do something al>out 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 automobile death* a year staring u- in the face. Child Records Excellent Occasionally l believe we stress too much the duty of the automobilist and not enough, the duty of the pedestrian. We arc begin ning to do pretty nicely in our school sys tem, and I am rather proud to say modestly in Houston we have gone a long way to ward* cutting down accidents to school chil dren. But how are xvc going to reach the grown tips ? These people must be taught -omchow. Who is going, to do it, and how? Frankly, l do not believe that we have yet found the technique which fits, we have not driven the fact* home hard enough and firmly enough to catch the popular attention. Increase the Tempo Am l treading on dangerous ground it I suggest that the press, the radio and public epeakers become a little more violent with these statistics? Not for a day. not for a week, but year alter year. There are, of course, coincidental activi ties which must go on. The timing of traf fic lights is important. Certainly all streets in a big city don't carry the *ame loads-- certain)} at ca>ily located spot* there is need tor shorter and longer watt* between light-changes. Bui tbexr we mu-t put in the hands of competent traffic engineer* who know their business. There arc hun dreds of things which ought to be done, and are being done to make the city street* safe for pedestrians. And still, my argument* show, I think, we must go farther than this--we simply must teach the adult pedes trian a* well as the child in the schoolroom, and the motorist. 80 29th National Safety Congress Are Traffic Court Cases Different? By JUDGE LcROY DAWSON Municipal Court. Los Angeles, Calif. (Editorial Note; The following is a brief summary.) Theoretically, traffic court cases are not different, but practically they are very dif ferent. They are different because you can't treat the average violator of traffic laws as a criminal. The average violator believes that his past good record should be taken 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 conics from the better dements in the community. The typical attitude in court is "why do you take the word of a Qommoo 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 dieck up on the policemen or they will go hog-wild. Nevertheless, the most adamant citizens are apt to be the most in error concerning the layout of streets at the scene of the arrest and other facts per tinent to the 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 determine his attitude, and then apply the best cure for the faulty attitude. Each viola tion, whether or not it caused an accident, must be assumed as potentially lethal. The defendant-before Uie court must be assumed as allergic to the safety education current in the community. Only the important cases should be brought to the court, and then enforcement should really apply. Slogan for traffic judges: "Take Your Time, Or I Wi!!.N The Meaning of Speed Laws By JUDGE H. E. HAKB Municipal Court, Little Rock, Ark. Under the `'Uniform Act Regulating Traf fic on Highways," the speed of vehicles is regulated upon a basis of sound discretion, considering the existing conditions which affect safety at the time and place. ' The basis upon which the driver shall regulate his speed, and upon which the courts shall adjudge the legality of bis speed, is what is known as the "basic-speed rule," 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 the Uniform Act is practically a restatement of the familiar 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 the speed law until a court or jury should pass upon the evidence. And in the earlier cases on that question, appellate courts of three of the states hdd that such a statute was too uncertain for a criminal statute. But the 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 has amended the Uniform Act by prescribing absolute Street and Highway Traffic Section 81 maximum speeds beyond which it is unlaw ful to drive under any circumstances: 60 miles per hoar for all motor vehicles, 55 for passenger busses and half-ton trucks, 45 for trucks carrying up to five tons and hav ing brakes on all wheels, and so on. But these maximum lawful speeds are lawful only when, under the basic speed rule, they are "reasonable and prudent under the con ditions then existing/' And it may be men tioned that these maximum speed limitations appear to be reasonable for Arkansas in view of the varied topography of our state and the particular type of traffic on our highways. However, the Uniform Act itself contains no absolute maximum limitations upon speed except that under the basic rule they must be reasonable and prudent. Prima Facie Limits Then, as a more nearly definite guide for motorists, officers, and courts, the Uniform Act establishes what it calls "prima facie speed limits/' This does not change the familiar rules of criminal law in regard to presumption of innocence, reasonable doubt, and burden of proof. It does, however, make it necessaryfor the driver to produce evidence of the reasonableness and prudence of his speed when he has exceeded the prima facie limit. These prima fade limits within munici palities may. however, be reduced by the municipalities, with the approval of the State Highway Commission, at such inter section* on the highway as the mimidpaKties may determine advisable, and the prima facie limits at such intersections are the speed limits which aTe posted on highway there And municipalities may increase such prima facie limits on highways such as through highways, but even there the munidpalities may not increase such limit* to more than 45 miles per hour. The prima fade limits do not relieve the driver, of course, of the duty to retard his speed for intersections, curves, lull-tops, dangerous road conditions or pedestrians or vehicles using the highway, when circum stances require him so to retard. 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 unlawful speeding. "Authorized emergency vehicles," such as fire equipment, police cars, and ambulances, are exempted from application of the prima fade limit rule when they are sounding their sirens, bells, or exhaust whistles, but the drivers are not thereby relieved of the duty to drive with due care for the safety of other persons and property. The Act also takes note of the fact that exceedingly low rates of speed may also be dangerous, and it prohibits driving "at such a slow speed as to impede or block the nor mal and reasonable movement of traffic" ex cept where circumstances require such re duced speed. The summons or a notice to appear which the officer serves upon a driver accused of violating the speed statute is directed to specify the speed at which the driver is charged to have driven and also the prima facie speed limits applicable to the locality. The Uniform Act specifically provides that the prima fade speed limit shall not affect the burden of proving negligence in civil cases. THURSDAY MORNING SESSION October 10. 1940 Group Session on Public Education and Traffic Engineering Presiding: Roy S. Marshall, Vice-President, Seattle Traffic and Safety Council, Seattle, Wash. -s2 29. !i .\ utional Safety Congress Use of Statistics in Public Safety Education By DONALD G. VAUGHAN Engineer, Aetna Casualty and Surety Company, Hartford, Conn. Siaiislical sources are divided into two general classifications: general accident sta tistics and data obtained from specific studies. General accident statistics wouid include "Accident Facts*' published by the National Safety Council, various state motor vehicle department reports, police department re ports, data compiled by the Interstate Com merce Commission Bureau of Motor Car riers, vital statistics as compiled by various health departments and the Untied States Bureau of Census, "Automobile Facts anti Figures" as published by the Automobile Manufacturers Association and similar re ports. General accident statistics are compiled for larger areas, entire states or the entire country. They are more general in their classifications and cannot be used to obtain needed physical improvements. In order to obtain the specific remedies we must go fur ther. What then can we do with this mass of data as accumulated in such publications as "Accident Facts"? That is an answer I have been seeking for several years. I have seen the time and effort that goes into com piling this data the National Safety Council finally presents to us in this booklet. I have wondered whether the expenditure of time and effort is worth while. This has been and Mill is a questionable subject. For instance, in each community of 100,000 population or over, at least one person spends the greater part of his time accumulating this material. Last year there were 93 such cities that re ported. This mean* that in these larger cities there are at least 93 people engaged the greater part of the year in preparing mate rial. To this can be added all of the work carried on in the smaller communities and in the state departments or other sources of these accident figures. It means a tremendous amount of work. How much of this is wasted because we cannot or do not do anything about it? For instance, if you should look at Page 91 of the 1940 "Accident Facts" you will notice that it contains direction analysis. That is, the number of drivers going right, left, straight through, etc. It is interesting in formation but wc do nothing about it. Look at the next pages. Pedestrian Action. What do wc do abont this? Practically nothing. The next Page 93 sliows Highway Charac teristics. The)* are interesting but nothing that we can correct without obtaining fur ther specific information about the particu lar highways involved. Still this matter iall accumulated for us at a tremendous ex pense. You may ask. "Should we do away with I hi*?" I would emphatically say "No." \Yc must know what is happening, fiow we arc doing and where we are going. That is what this record give* us and it also allows u> to compare the record with that of previ ous years. It also lets us know what our record is-compared with that of similar communities. This material could be changed so as to make it more useful; secondly ami most im portant, more use could be made of the in formation after it is obtained. f.et us take up the first point. Could some of these classifications be changed so that they would be more useful? I believe they can. It would not be much of a loss if some of them were eliminated. Changes have been made in the past few years but this form will have to be continually changed to keep up with our changing traf fic conditions and our changing needs for various forms of accident data. Even- com mittee that contemplates such changes has to balance the value gained bv such rearrange ment against the loss of not being able to make comparisons with previous years. It is very easy, however, for such committees to add details that apparently are desirable and to fail to consider the burden of detail that is being built up for some one else to at tempt to handle. Another thing that wc must remember is that there are many inaccuracies in this type of data. Most of the information is based on reports of operators. You know how a driver is always right. His accident report construes the facts so that he is right ac cording to the report. This all goes into the accumulative data. Much misinformation balances out, but in some of these cases the Street and Highway Traffic Section 83 information obtained in the-classification i not accurate. More and more must wc consider the tre mendous amount of time and effort that goes into those accident facts. More and more must xvc endeavor to simplify the gathering of these so as to eliminate insofar as possible inaccuracies and classifications that arc used very little. This will then re lease the people who arc working on them so that they can put more time on the spe cific studies which arc more immediately productive of Itcncficial results. I was once actively interested in the com piling of this material and did some of the analyzing personally. I felt that the effort extended far exceeded the returns. Since then a number of changes for the better have been made in the forms used lor ob taining this information. I still, however, hear complaints that it is a lot of work with little in return. That is why T am convinced that further improvement can be accom plished in simplifying the form. My second jwint was that more use could i>e made of the information after it is ob tained. Everyone can go a lot further in the u>c> made of this material and this will eventually bring the returns everyone has l>ccn seeking. Soon after sending the monthly summary* to the National Safety Council, mnn cities give the newspapers a story ou 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, parenttvachcr> a-'ociaiion*. etc. A week aiter the monthly summary has been published, a second story can be ob tained by -tudying the results and compar ing them with those of the previous month, the same month last year, or some similar period. From ihi> comparison one single item can f*r 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. Kadio stations will make use of some of this information in their safety programs or spot announcements. If there i* a speakers* bureau ami it is active in furnishing speakers for club o association meetings, these compilation# should be furnished the speakers Statistics or accident tables in themselves are very uninteresting and arc not read or assimilated by the general public These records, therefore, should be given the pub licity man's touch. They should be ghc.eye appeal, if that is the correct term. Local organizations interested in safety should give considerable thought to the in teresting presentation of statistics. How else can you let the general public know votn problem?- ? It is very easy to accumulate interesting.'' and usable material in the information oh tained from specific studies. This would include traffic counts, driver and pedestrian obedience studies, collision and condition dia grams. etc. Usually the remedy for a bad situation is found as a result of such studied I believe this material if properly used i* of extreme importance m finding tin* nuxt serious accident locations and in applying the most jensiblc remedies. It is alr-o of u-<. in showing logical reasons for turning down certain requests that are not ot enough im portance in comparison to the whole to war rant immediate correction. Recently state highway departments liavc used vehicle volume counts in alloting ex penditures for new road building program# They have Wen able to combat political u; financial influence In showing the public tin logic of making improvement# on the high ways having the higher vehicle volume an-* the higher accident frequency. I have endeavored to gather a few wayof presenting this material that might be ot interest to you. On the other hand, you max know' of other material that you consider belter than that which 1 show you. Yoti may, however, see some way of prc>enliug data that has not already occur/ed to you. I believe we should ail be seeking new* wayof presenting this same old material. Only through such new methods of presentation are wc going to reach our drivers ami pe destrians. In starting a revised safety committee am! in cooperation with the National Con servation Bureau, we developed a series of charts for a loose-leaf booklet- Here \uaccomplished a two-fold purpose. First un acquainted the new members with the up- 84 39th National Safely Congress to-date accident situation and refreshed the memories of our older members. Secondly, wc 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 the acci dent story to them. Each member was pro vided with such a book. It being in looseleaf form, the committee member could keep all his committee material in the book and we at headquarters could furnish him with additional charts 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. X Pedestrian-residence spot map. 4. Hour of day study of pedestrian ac cidents. 5. Pedestrian night 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 *rst intersections. 11. Spot it 4 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 time we furnished addi tional data such as sheets on `'Getting Re sults'' as published by the National Con servation Bureau, studies of certain inter sections giving collision diagrams, report on our measurement of the proposed traffic light installation and other similar material. Another item we are trying is a one-page 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 arc of extreme value, especially where they can be cheaply printed, and given a large circulation. Wc 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 such 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 studies can be given special attention. Recently we made a study of court cases. 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 possible use should be node of this material in education of the public and in selling public officials cm the importance of needed improvements. Without these acci dent facts you cannot hope to present your case. 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 X.. TOWERS Assistant Traffic Engineer, Illinois Division of Highways, Springfield, 111. . There are several reasons why a depart ment with statewide organization is in a particularly good position to render aid to local communities: 1. Knowledge of Traffic Conditions. Whether the department in question is a Highway Department or Motor Vehicle Ad ministration Department, or other, the back ground of knowledge gained from such work Is a vital rid in applying remedies in individual situations. This is augmented when the department handles state traffic administration and accident reporting. Z Scope of Organization. Statewide organization assures more uniform applica tion of engineering and educational meas ures. 3. Type of Personnel. Because of ex perience and special training in traffic ad ministration, 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 dered to local communities should depend upon the personnel assigned to this activity, both as to sue and qualifications. These reasons indicate that there is not only an opportunity but a responsibility for effective help to local communities; a re sponsibility as great as for any other of the welfare services. Some of the aid which can be given to po litical subdivisions may involve matters un der the jurisdiction of the department In such cases collaboration with local officials promotes interest and an insight into the so lution of traffic problems. Much of the help which it is possible to give, however, involves matters entirely under the jurisdiction of local officials. Here the approach must be purely that of an interested and informed friend and every appearance of infringe ment of authority avoided. In Illinois wc liavc endeavored to give help only to pro mote local interest in doing the work. Noth ing should be undertaken which promotes dependence upon a state agency for per forming a local service. One very* useful tool tor the promotion of all traffic safety activities in municipalities has bear 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. City officials more readily engage in such activities when they arc objectively set up by an impartial agency such as the National Safety Council. The results oi enrolling 100 per cent of the eligible cities in Illinois in this Contest and then cooperating with the cities to promote their standing in the contest is evidenced by the awards made. Cities under 100,000 popu lation, where the influence of state repre sentatives is felt most, secured nine out of the 42 places awarded to cities in this popu lation group in the last five years. If awards were apportioned according to population, we woold have had probably two or three. Education ' 1. Promotion of local safety councils- In titles 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 fied men is decidedly the best agency tor education of the local public After it> for mation continued assistance should be given Connecticut varies this procedure by having the Highway Department budget a portion of its funds to finance a State Safety Com mission. The State Safety Commission then helps organize and service local safety com mittees or councils. I am informed several other state safety organize .ions function in a similar manner. 2. Educational exhibits. At state and county* fairs, city safety shows and automo bile shows, worthwhile exhibits can be dis played. This can be done without cooperation of local groups but is more effective when done with such cooperation. 3. Maintenance of Police Safety Squad. A small but efficient detail of men can, among other activities, handle requests by local groups for talks and picture show? 4. Driver Training Courses. The pro motion of driver education and training courses in the secondary schools is one of the most Important activities which can be undertaken bv a state organization. How ever, such a program should only be under taken with a full knowledge of the work in volved and the type of personnel needed. In Illinois wc 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: ^ (a) Supply text material at cost of prim ing. (b) Arrange for special lectures. (c) Schedule Safety Squad Officers to show pictures, lecture, and assist with road demonstrations. (d) Supply test materials. (e) Borrow dual control cars from auto mobile dealers. (f) Supply certificates of award. (g) Conduct road tests in connection with state drivers* license examination. 5. Teachers conferences and courses. A need arising from the 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 held in various parts of the state for teachers and school administrators. Also, course# have been conducted at the five 86 29th National Safety Congress State Teachers Colleges. This year, the Center ior Safety Education of New York University conducted a two-week credit course at the University of Illinois. 6. Traffic Safety Contest Reports. Dis cussion of this subject probably falls more logically under educational activities than any other, since in the end the value of the report is educational. As mentioned pre viously, we feel that the National Traffic Safety Contest is a useful instrumentality for the promotion of all traffic safety* activ ities, since the annual contest report fur nishes a thorough inventory of such activi ties and shows up the weak spots in the uucty program. Each year our engineers assist the cities in making out these reports. When the analyses of the reports are prepared by the National Safety Council wc review these u-iih the local safety committee or city of ficials so that deficiencies in the safety' pro gram may be thoroughly understood. Enforcement I. State Motor Vehicle Act. A slate motor vehicle act is of primary importance <o the state as a whole, but a State Act Regulating Traffic on Highways based on Act V at the Uniform Vehicle Code is help-'ul to local communities in two respects. Irir*i, the Act requires the publication of a Manual of Uniform Traffic Control Devices which serves as a guide to communities in the installation of such devices. Incidentally, *t azures statewide uniformity' in the appli cation of traffic control devices. Secondly, the Uniform Act can be made the basis for biting a Model Municipal Traffic Ordi izing that, to handle the many phases of traffic control work, more than casual ob servation and instruction in the subject are needed. For this reason. Department repre 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. 3. Promotion and Assisting with Police Schools. In addition to giving concentrated, specialized training to a few men in the traffic department, it is possible to bring to the entire police staff lectures on general phases of traffic control. Municipalities oc casionally have "police schools" consisting of a week or two of lectures by authorities on various phases of crime detection and con trol. 4. Traffic Administration Counsel. Even after officers have had training, inertia in the police department may make it difficult for the men to develop the type of program about which they have learned. In numerous cases, the State representative finds it neces sary to continue assistance in various mat ters after officers have had the training. These include installation of accident report ing systems, tabulation of accident records, study of accident prone locations, selective enforcement programs, collision and condi tion diagrams, parking studies, and so forth. Not only our engineers but our Safety* Squad Officers render aid to local police. Oar officers gain more confidence than engi neers in questions relating to enforcement, and local police feel they are talking with men who understand their problems. All of the safety* squad have completed special courses at Northwestern University Traffic nance for adoption by municipalities, Such Safety Institute, and are qualified to give an ordinance can be made much more spe* counsel to city police departments, To put riiir in ils recommendations Ilian the more (lie police work on a satisfactory basis, it is recommended that tlie Chief of llie force or some oilier administrative officer lie (rid foi, Unless litis Mom if ww 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 hour 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 course, i> a big help lo local police dc- jiartmcnis. ' Engineering 1. Traffic Engineering Studies. As men tioned before, the Illinois Division of High ways assists authorities in making many enKim-cring studies on streets entirety under local jurisdiction. These arc made usually lo give mural support to officers who haw had *omc special training ami arc trying to rrv out a local program. Studies made lor cities on streets under local jurisdiction have included collision diagrams and condi tion diagrams at high accident locations and analyes for application of corrective meas ure-; speed and volume check*: parking studies; complete analysis of city traffic light systems; street lighting studies; and <o on. Most engineering studies are con ducted on state routes, but where feasible, city officials are kept informed of the prog- re** ul studies, the technique used, and the conclusions arrived at because oi the edu- catininl value lliis has along traffic engi When an analysis is completed, the officials of each community* in the county arc called together for a round table discussion of the report. 3. Promotion of the Use of Traffic Engineers. One ox the outstanding weak nesses in many statewide programs has been the failure to arouse sufficient interest among cin* officials to adopt traffic engineering tech niques In dealing with the traffic problem. It has seemed difficult for us to convince city administrations, and this includes a number 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 graduallv being seen. ' There are a number of agencies 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 spitc'of all possible help from the outside, each city with any kind of traffic problem should have a traffic en gineer or assign the duties of the office to the engineering department. i Training for Traffic Engineers, Dur neering lines. Tims, to officials who have been ing llie past summer wc canvassed men en- arrihlunmi hi formulaic remedial measures ffitged in traffic wild; including city engi on ilit bis of casual observation and snap neers, city traffic engineer,and county judgment, wc arc able lo demonstrate llie >ii|>eriiilcndcitl$ of highways lo sec wht value of a scientific approach to Iraflic con- ilicir altitude would be toward attending a motional work is necessary to sell the admin rum which contains provisions of self- istration on the need for conducting the pro- ? Atrt trt nmintiM. 1 am informed that The subjects to be covered arc: Intersc- 88 29th National Safrty Congress THURSDAY AFTERNOON SESSION' October 10,1940 Joint Session with Commercial Vehicle and Transit Sections Presiding: E. E. Grover, Director of Safety and Cbnanc. The Cahmbtu and Southern Ohio Electric Co., Columbus, O.. and General Chairman, Transit Section, Rational Safety Council, Street Traffic Conditions and Mass Transportation Safety By GEORGE BARTON Traffic Engineer, Chicago Motor Club, Chicago, 111. I think I express accurately the average motorist's viewpoint in saying that he cor dially dislikes the street car and bus. I be lieve this is a shortsighted policy because mass transportation and private motorists have much In common. Mass transportation ocadents fall into three general groupings; one, accidents pe culiar 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 turning vehicles, and so on. Some result from improper behavior by the motorist, some are evidence of error by the transit operator, while others may be attributable to tlie physical conditions on the street. If 50 per cent of mass transportation ac cidents are just ordinary traffic accidents, then both transit and motorists can profit from activities which will eliminate'street traffic hazards. This work also will favor ably affect transit's other accidents, partic ularly of the passenger type. I learned a large percentage of passenger accidents oc cur with the sudden accelerations or de celerations necessary to avoid conflicts. Further, many of the passenger accidents in juries result from the sudden impact when the mass transportation vehicle itself actu ally comes in contact with other street-users. Therefore, it appears that mass transporta tion safety is directly related to street traffic conditions. It is commonly accepted that accidents in street traffic are one evidence of street traffic indSdency and this hold* tnx for buses and slrcrt cars. May we agree then, in foundering ibis question of mass tmupoitatica safety, not to confine mat itttntkw to safety matters alone, bat to look a tittle deeper with traffic efficiency as oar concern? In considering concrete cues, I believe I can most readDy demonstrate how timilar are the interests of mass transportation and street traffic. Il appears to me that there are four gen eral dosses of treatment which make for improved traffic flow for both mass trans portation and private motor vehicle*. In each classification there is work to be done both by the mass transportation authorities and <trcet 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 obvious steps that. immediately demand at tention arc enforcement and education to improve driver behavior. Well administered driver license laws work toward this same end. There also are many simple and prac tical engineering treatments. For example, double parking is one of the greatest ob stacles to efficient transit operation, as well as to general street traffic operation. Would not both transit and motorists benefit if the engineers planned an equitable, enforceable parking tune limit? On many crowded streets where a free lane for moving traffic is not available between the street car and the autos parked at the curb, it would be profitable to the general public to eliminate parking at least in the rush hours. Street and Highway Traffic Section 89 When no parking zones are established to provide for bus stops, it is not the bus patron alone who profits. In cases within my experience the few parking spaces sac rificed by the motorist are a good invest ment in traffic fluidity. Instead of buses blocking moving lanes as they load and un load, the motorist has a chance to move. Another source of annoyance to all of us is the constrictions resulting when vehicles park opposite safety zones, causing motor ists to be delayed, who, in turn, hold up street car movements. A better coordination of traffic signals obviously will permit free movement by both automobiles and mass transportation vehicles. If needlessly restric tive signs can be abolished, both will profit Simple treatments like pavement markings arc of decided aid to both. Stop-clearance lines speed street car loading and encourage pedestrian safety. The same is true with marked crosswalks. Street car clearance titles encourage timid drivers to pass when it is safe for them to do so. This list of work for street traffic author ities tndndes the ordinary functions carried oa today in virtually all our cities. Have we reached perfection in sign and signal work, street marking, parking control, and the like? Most assuredly not. and additional at tention to these matters will jointly benefit transit 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 persound, just as private car driv ers require selection, training and control. Second, just as enforcement is required to regulate the behavior of many motorists, so also additional regulation of transit person nel may prove desirable. Third, could not more transportation agencies look toward the inherent safety of their vehicles just as public traffic authorities are seeking to im prove the mechanical efficiency of automo biles through such means as compulsory in spection ? I personally have seen many a bus turning across traffic lanes, without adequate mirrors to permit the driver to see where he was going. Buses may lack turn sig nals. U bus operations call for one of these cumbersome vehicles to cut right across sev eral traffic lanes, isn't it only fair that they be equipped with signals which will tell tbe unsuspecting motorist what is about to hap pen? There are needless inefficiencies of transit operation, or at least so it seems to me. For example, an unexpected street car stop located in the center of an unusually long block was the site of several pedestrian ac cidents. When the stop was abolished, the pedestrian accidents ceased, and efficiency was improved. Second Class of Improvements The next classification of improvements are those requiring a little more time or a little more money. What is it that traffic authorities can do tn this connection ? Make equitable provisions for transit: Jn one case within my knowledge an entire street through a business district was being redesigned without any thought for bus routes, loading and transfer points, or ter minals. Simple street widening: On many narrow streets a free lane for motor traffic can be provided merely by setting back curbs a few feet at a very reasonable construction cost Provide channelisation: Both vehicular and transit* traffic will be speeded up and safeguarded by channelization projects which fill up confusing street space, confine traffic to apparent and definite lanes, and permit more expeditious signal!ration. Install loading platforms: Raised plat forms, properly lighted and perhaps fenced, assist in the expeditious loading and un loading of street cars, and avoid the neces sity for the motorist to wait 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. My ignorance of mass transportation prob lems makes me hesitate to suggest changes in transit systems; yet to me it seems obvi ous that transit should consider moderniza tions comparable to those just suggested for street traffic. Off-street terminals: .Just as street space needed for moving traffic may be provided through storing automobiles off the public streets, similarly traffic flow can be enhanced if terminals for street cars and buses were more commonly provided on private prop erty rather than in tbe public streets. Revised operations: A certain amount of "loafing" to meet schedules may be unavoid- 90 29th National Safety Congress able for both street cars and buses. For my part t 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, 1 could point to wid ened streets on which the carlincs arc far olT-cemcr endangering street car and auto passengers alike. Third Classification A third classification of activities designed t. 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 sued users, like oil qnd water, mix with difficulty. For example, a major incompati bility is desired speed of operation. A street car making stops at block after block at best averages a low speed, while the through traific seeks to maintain a speed two or three times a* great. Further, mass transportation by it, very nature seeks to serve congested iiu-inoi< centers with their pedestrians, park in:. loading and unloading, and 'the like, ni.'h -irtti* a* these should never be convoiplatcd as through traffic arteries. i`lan for segregation such as may be -underel hy public agencies include-- >i.<truci:on of by-pass routes: In towns farm and small, through highways are be ing iakn from the retail district and sent through the edge of the town or arc skirtmu it entirely. Pevelopmenl 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 welt. Through constructive planning, parallel streets may be opened up 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 be influenced by the type of service rendered by trausit. When transit offers taster, quiet er, more, frequent and cleaner service, some of our traffic problems may solve themselves. Eliminate duplicating sendees: 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 tour blocks from a major car line was needlessly in vaded by buses driving some motorist? back on to the car line street. Fourth Classification Little need be said here regarding my fourth classification in which I have placed long range traffic and transit planning. It may be some day that our transit and traific problems may be solved--and the conflict* and accidents ended--when our cities an redesigned with street systems of modern 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 tliat por tion of the report of the Committee on Night Traffic Hazards which presents ex amples of recent night-accidcnt reductions through improved street lighting. These data, together with those previously re ported. show that one-third, one-half, or often more, of the night accidents are pre- Strcct anti Highway Tragic Section 91 vented where good visibility is provided. On urban streets, and on those portions of highways with high night-accidcnt 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. The Program Committee requested lliat this paper include special attention to the influence of illumination upon four clashes cti accidents. Generous assistance was re ceived from Hawley Simpson. S. P. An drews. E. 1. Kreh. L. 1 Schrcnfc. E- J. Reeder, and K. G. Jasper. 1. I'isibitity as affecting intersection acci dents. particularly vehicular accidents of the sidesseipe and headon types. The report of the Committee on Night Traffic Hazards presents three example* of intersection accident cxpcricn*c l*efore and after lighting improvements were made. \i three Chicago inter-e\*tim-. inadcq-.ian* illumination was replaced by -odium* -,a:op lighting. In the 12 month- preerdinc the in-tallation there were 34 i*er<ona1 in.ita acctdmis and 61 proper!} damage ac-d*nt- at these intersections In the 12 m.mih- following there were 12 jk*rsonal injury accident- and 28 property damage :wndenl--a reduction of 58 per cent. Thr lighting wa* modernized at 1^5 inUT'fCtinns in Saginaw. Michigan. Previ ously, 46 5 per cent of a'l accident- at tho-v i'**ati.in- occurred during darkne-*. Stthequiitfh. the night aTsdcni- d*,p|*d to 51'* - cvt| ri ihv total. Sodium lighting wa- in-ta'k' at 2* l.r\ngt h- inUT-ectnei- Comparing equal "be* ore am! afte-" period-, night fatalities trapped from 12 to none and night injuries from 128 to 15. In none : the above instances could an analy-i- <i the accidents hy t\pe> Ik* ob tained. 2. rVisibility as affecting pedestrian acci dents. particularly when binirdint7 or alight ing from buses and street cars. An analysis of traific fatalities by types lias been made in Detroit on 31 miles 01 heavity tra\*elcd thoroughfares. Pedestrian fatalities dropped from 36 to 14 per year when ilw street lighting was modernized. At the same time, fatalities of drivers and occupant* of automobiles dropped from 13 to 4. While the ratio of reduction was higher for car occupants, it is noteworthy that the most lives were saved among pe destrians. On a street car line in Indianapolis pas senger-type accidents occurred at a some what higher rate per passenger carried at night than b> day. No information was available on the nature of the accidents nor on the adequacy of the street lighting. Pending more detailed studies, the report oi the Committee on Night Traffic Hazards summarizes the conclusion1 '`Traffic safety lighting continues to demonstrate its value tor reducing certain types of accidents It appear- to be particularly effective in pro tecting pedestrians." 5. I*'iri6t/ify as affecting falls of passen gers boarding or u/ip^iut<7 from buses and street ears. No data could be found having sufficient bearing upon this topic to warrant inclu sion. /. Visibility as affeettng collision accidents invoking buses and street cars. \ two-year analysis wa made or the *.vll:-ion accident- per trip on the Indianapolt- car line previously mentioned. The niuht accident frequence per trip was found 10 In- 8 per cent greater than that hy day. A similar -tuck in Elizabeth. N\ covering all tran-it operation*, likcui-c showed atl 8 per cnt higher accident frequency per trip at night. The combined record* of 18 bu- companies, on the other hand, showed it per cent fewer coltirion accident* per trip at night. Another Mudv. covering street cars only, showed a curve of vehicular collision* which followed clo*clv the curve of number of cars ip operation; m fact, th<tvvn curves cross four lime- over the 24- hour i>criod. From these scanty data. nc would con clude that good or had street lighting has little effect upon accident frequency in tran sit operation. Hawley Simp.-on has warned, however, that very minor as well as scriouaccidents were included in mgst of the data, and a different picture might develop f the accidents wen* classified by severity. Such classification was found possible in only one case; the street car stud} jnt mentioned in which the curve of accident frequency followed closely the curve of cars in operation, ft was found that the night severity was 40 per cent greater than that by day, based upon cost of claims. Tn spite of this increased accident severity at night. 92 29th National Safely 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 acci dent data now available, and is now laying the groundwork for more detailed studies. It would 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 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 belter 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 need of more quantitative informa tion on lighting in relation to accidents is recognized by the 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 the Committee is completing a new publication. "Recommended Standards of Street Lighting" which will supersede the Code. The recommendations for each street classification arc in terms ol the average and minimum lumens per square foot, or fool-candles, delivered to the pavement and to the sidewalks. That is, the premium is properly placed on lighting equipment which distributes effectively a greater proportion of Ihe light over the street and sidewalks. Safely 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 by such factors as the reflection characteristics of the 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 speci fication." 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. 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) Tlie brightness of the pavement at points along and across the street, measured at the near-grazing angles at which motorists and pedestrians view a roadway; (2) The 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. Under former techniques the above bright ness of pavement and obstacle could be measured and the veiling brightness could be computed. Such determinations required long hours of field work 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 neers, it should be possible to correlate measured values of visibility with detailed accident experience under typical conditions of street and traffic. Specification of traffic safety lighting could then be placed on a definite and fully rational basis. Street and Highway Traffic Section 93 Report of the Committee on Winter Driving Hazards By RALPH A. HOVER Associate Professor of Highway Engineering, Iowa State College, Ames, la., and Chairman of the Committee The following is the Summary and Rec ommendations of the 1940 Report of the ConuuiUee on Winter Driving Hazards. The complete report is available in pamphlet form from the Council's Traffic Engineering Bureau. The complete Report presents the follow ing information gathered in its year and one-half of research: (1) the winter acci<knt problem: (2) results of the Lake Cadillac skidding and traction tests; (3) rhe special accident hazards of winter motor vehicle driving; (4) the effect of dimale and topography on these hazards; (5) me chanical |uipcnmt and driving practices recommended to drivers for safe winter driving: (6) knowledge of drivers concern ing winter hazards; (7) winter highway maintenance for safety; and (8) the ele ments of a sound system of winter road conditions reporting. Summary and Recommendations 1. Accident death rates as related to motor vehicle Iravel arc highest in the winter in alt sections of the country. Winter death rates arc about 40 per cent higher than sum 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. 2. One of the major winter hazards is inadequate traction oo snowy and icy roads. Inadequate traction. coupled with speed too fast tor road conditions and with other improper driving practices such as lack of winter equipment and faulty braking, fre quently results in skidding. The proportion of accidents involving skidding is only about >ne per cent on dry roads, but is as high as 27 per cent on wet roads and SO per cent on snowy-icy roads. 3. The most striking fact revealed by the Lake Cadillac skidding and traction tests was the surprisingly wide range of per formance with bare tires on smooth ice. Braking distances from 20 miles per hour averaged 110 feet on dry, sticky ice at near zero temperatures, and 228 feet on wet icc at thawing temperatures with the sun shin ing. Similarly, times of acceleration from 10 to 20 miles per hour varied from 6 to 19 seconds and maximum speeds on circles of 100-foot radius from 20 to 10 miles per hour, on dry and wet ice respectively. Aver age winter day-time temperatures commonly approach thawing, at which time the wetter ice conditions prevail. 4. Although tires with good treads are preferred to smooth tires on dry and wet roads, performance with new tires is no better than with smooth tires on snowy and icy surfaces. 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 having no advantages on smooth ice or 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 faces are not recommended. The resulting increase in traction for stopping is slight, and this is more than off-set by reduction of safe speed on curves. 6. The use of tire chain* 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 per cent on dry and wet icc respectively, as compared with bare tire performance--the variation in improvement being due largely to the wide range of bare tire performance on dry and wet ice, while performance with chains ts fairly uniform at all temperatures. Braking distances from 20 miles per hour on ice varied from 75 to 125 feet^and times of acceleration from 10 to 20 miles per hour from 4 to 7 seconds. New chains on all wheels further reduce braking distances about 30 per cent below those with new chains on rear wheels only. On tcy curves, however, speeds with chains should be no higher than without, because chains on rear wheels only do not add to control against skids. 7. The spreading of treated abrasives on snowy and icy roads makes driving safer. 94 29th National Safety Cvnyress Braking and acceleration performance is from 30 to 65 per cent better titan on bare ice--this variation also being due primarily to the wide range of performance with bare tires on dry and wet ice, since performance with treated abrasives is uniform at a!) tem 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 jwr hour averaged 4 seconds. With untreated abrasives performance is from f0 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 8. The other most serious hazard of winter driving is reduced visibility. Tins is caused, first oi all, by longer hours of darkness, with the night accident problem seasonally more extended in northern titan in .southern states. Snow and sleet storms and accumulation of frost on windows seriously reduce visibility. Drifted snow may hide culvert headways and other ob structions. Motorists should maintain ade quate visibility* for winter driving through proper conditioning and maintenance of equipment, by keeping outside surfaces of windshields and windows free of snow ami ice, and by preventing formation of tog and frost on inside surfaces through condensa tion of moisture inside the vehicle. 6. Safe driving requires much more skill anil caution in winter than in any other -ca-on. Speeds must be reduced on wet, snowy and icy roads because of the lower iruniou and the impossibility of sudden maneuvers in emergency situations. To drive with equal safety' on packed snow, speed* with chains on rear wheels must Ire about 25 per cent, and with tare tire* about 45 per cent, lower than on dry pave* incur. For equal safety on smooth kc, diced? with chains or with abrasives must be about one-half, and with bare tires aLout one-third, of speeds on dry pavement. 10. Highway departments should strive for "lrc 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 calcium chlo ride is recommended. This treatment embeds the abrasive particles in the snow* or icc. ami improves vehicular performance about JO per cent over that possible with untreated abrasives. 1). It is recommended that state high way officials establish standards for the proper illumination of snowplows and other maintenance equipment, to give drivers ade quate and uniform warning of such hazard?Standards should also be established for marking of culvert hcadwalls, guard-rails, and otlrer low obstructions that may be covered by drifted snow. V2. State highway departments should de velop effective systems of winter road con dition reporting, so that driver* will be sufficiently warned of storm and road con ditions. This information should be made readily available through all publicity media, and should be accurate and dependable. Safety instructions dealing with road or weather conditions should be combined with the reports. Slate highway department .should also strive for uniformity in the meaning of their reports to the public, so that drivers m inter-state travel can prop erly interpret the reports iti the several states. FRIDAY MORNING SESSION October 11, 1940 Joint Session with Child Education and Transit Sections For a full report of this session, please turn to the Child Education Section, on page 165 of this volume. ADJOURNMENT Commercial Vehicle Section Officers 1939-1940 Genera! Chairman--T. B. Johnson. Manager. JYlivcry Divi>ion, Marshall Field and CoChicago, 111. I'ice-Chairman--I. \V. Loro. Safety Engineer, Atlantic Reining Co.. 3144 Fa*-} unk Ave nue, Philadelphia. Pa. D. M. McCracken. Assistant Chief Engineer, in charge Automotive Sat'd} Oiv.. Lib erty Mutual Insurance Company, Boston. Mass. H. H. Keij.v, Chief, Section of Safety, Bureau of Motor Carrier?, Inter-tale Com merce Commission, Washington, D. C. -VrerWury^-H. S. Cole. Assistant Superintendent, The Evening Star Xow-papcr Company. Washington. 1*. C. Membership Committee Chairman--H. J. Jones, Director of Safety and Personnel. Auto mobile Shipper?. Inc.. Detroit, Mich. Program Cvmmittee Chairman--\V. F. Brow v, Sat'd} Engineer, Consolidated Edi-"n Com pany of Xeu York. Xew York City. Executive Commiitee-at-Large-- John M. Barker. Purchasing Agent & Director of Fleet Operation-. Wa-hliuriv Crosbv Co. of Central Division, General Mills, Inc., Chicago, 111. R. C. Ha\en. Safety Engineer, Continental Baking Co, Xew York City. Kenneth R Fiflcj, Safety Engineer, Consolidated Frcightways, Inc., Portland. f*r.von A. E. Li'Nd>teaDT. Claim Agent, Bowman Dairy Co., Chicago, III. IX F. McMvrchv, Chief. Safety Division, Tennessee Valley Authority, Chattanooga. Tenn. A. \Y. Meinkc, Superintendent. Audit-Engineering Department. Indemnity In-uramv Company o: North America. Philadelphia. Pa. C. G. Morgan. Jk.. Manager, Division of Operation*. .American Trucking A-^oatimi*. Inc.. Washington. D. C. K. D. Porter. H08 South 17th St., Mattoon, III. H. D. Scheffer. Safety Director, Auto-Owners Insurance Co, Lansing. Mich. B. C. Skh.s. Director o{ Safety & Personnel, Pacific Freight Lic. Lr* Auyclc*. Calif J- K- Stt-ele. Superintendent of Safety, Oklahoma Gas & Electric Company. Okla homa City. Okla. W. E. Lorence. Major. Corps of Engineer*. Office. Clue* of Engineer*. War lb-part- mem. \\ ashinifton, D. C. Officers 1940-1941 General Chairman--J. \V. Lord, Atlantic Refining Co., 3144 Passyunk Ave., Philadelphia, Pa. Vice-Chairmen--D. M. McCracken, Liberty Mutual Insurance Company, Boston, Man. H. H, Kelly, Bureau of Motor Carriers, Interstate Commerce Commission. Wash ington, D. C. H. J. Jones, Automobile Shippers. Inc., Detroit, Mich. Secretary--H. S. Cole, The Evening Star Newspaper Company, Washington. D. C\ Membership Committee Chairman--H. D. Scheffer, Auto-Owners Insurance Company, {.ansing. Mich. * bo 29ih National Safety Congress Program Committee Chairman--\Y. F. Brown, Consolidated Edison Company of New York, New York, N. Y. xvvu/itv Committee-al-Largc-- J. M. Barker, Washburn Crosby Company, Central Division of General Mills, Inc, Chicago, III. J. M. Barclay, Chicago Division, United Parcel Service, Chicago, 111. Kenneth R. Field, Consolidated Freightways, Portland. Ore. D. D. Gardner, Commercial Motor Freight Inc., Columbus, Ohio. D. H. Gh-bouses, Norwalk Truck Lines, Norwalk, Ohio. R. C. Haven, Continental Baking Co., New York, N. Y. T. B. Johnson, Delivery Division, Marshall Field 8c Con Chicago, 111. H. L. KabstaDt, Hartford Accident and Indemnity Co., New York, N. Y. Major W. E. Lorence, Corps of Engineers, Office, War Department, Washington, D. C. A. E. Lundsteadt, Bowman Dairy Co., Chicago, ID. ' A. W. Mejnke, Indemnity Insurance Co. of North America, Philadelphia, Pa. C. G. Morgan, Jr., American Trucking Associations, IntL, Washington, D. C. B. C. Skeen, Pacific Freight Lines, Los Angeles, Calif. Morgan B. Spexr, Jr., Horton Motor Lines, In<L, Charlotte, N. C. TUESDAY MORNING SESSION October 8, 1940 ' Fleet Safety Presiding: T. B. Johnson, Manager, Delivery Division, Marshall Field & Co., Chicago, and Genera] Chairman, Commercial Vehicle Section, National Safety Council. The Commercial Driver's Opportunity to Prevent Accidents By T. L. PREBLE Supervisor of Automotive Transportation, Tide Water Associated Oil Company, New York City It is necessary' for obvious practical pur* poses to expand this discussion to include those executives to whom the drivers report, together with the company policies under which they operate. ' This word "safety*' seems, in the minds of many, to have developed a certain nuisance value. 1 have met many well-meaning ex ecutives to whom the word represent? some thing intangible but vaguely important. There are others, however, who are keenly alert to the problem. In many Heels, particularly the larger ones, some very effective results are being produced, but the majority of commercial vehicles arc operated in smaller fleets and bv individual truck owners. Further en deavor must be made to get constructive suggestions, therefore, in the hands of all Beets, large and small. I am inclined to agree with Dr. Harry R. De Silva, who said in a recent letter to me, "I, personally, am very much Impressed with the fact that there is a great deal of rule of thumb methods in fleet work and very little research. We have attempted to do a little research ourselves, but find that most truck fleets are pretty well satisfied with their present methods and about the last thing they are really interested in is re search, except of a superficial nature." Men whose work involves direct driver supervision should adopt a three-fold con ception of their jobs; First, they should thoroughly school themselves in safety facts; second, they should institute specific pro cedures in the interest of really putting driver safety over the counter; and third, they fhould wherever necessary, produce Commercial Vehicle Section 97 data proving to their superiors that safety on the highway as to his intentions by virtue and self-interest are on common ground. of the positioning of the vehicle for left turn, for right turn, etc. Mr. Lord also bears Driver Safety Facts down heavily upon the use of signalling Men who supervise drivers should be keenly aware of the importance of an un remitting study of safety facts. Let no supervisor deceive himself as to the sim plicity of the problem! alone. For example, "does not a required hand signal, when pulling away from the curb, tend to divide and case the sense of responsibility? Wouldn't wc be far better off if we taught and required the driver to look back; and back far enough to make Types vs. Causes. Fads must be useable. certain that when he pulls away from the Max D. Kossoris. in his Sept. 1939. article curb, he can enter the flow of traffic smoothly in the Journal of the American Statistical without causing an accident or being in Association, points out that statistics too volved in one." frequently portray types of accidents, but do not get at causes. Commercial vehicle oper ators whose fad-getting procedures are in adequate can always obtain assistance from their insurance companies, from the Na Mr. Lord continues by emphasizing that ibis should be the driver's definite respon sibility, giving him no slightest alibi such as the hand signal produces. tional Safety Council and from numerous Inattention. Last August, Dr. A. R. Lauer other sources. Such procedures should al ways xachxJc comparisons with fleets en gaged m the same industry. of Iowa State College was quoted as stating that most violations arc not deliberate and that most accidents are caused by inatten Costs. Like other accident fads, costs tion. Except for the occasional commercial should be accurately tabulated and should driver, usually of the rather emotional, chip- be frankly rfivranecd with drivers. Why on-the-sboulder type who is sometimes guilty should not the management take tlie driver of retaliatory driving. Wc can all agree, into its confidence by factual discussions of can we not, that most violations are not de the effect of arririruts ou costs,--including liberate on the part of commercial vehicle such obviously important items as insurance drivers. As far as inattoition is concerned, preminma. repair core*, damaged merchan it is significant that the operators of the dise, oust of '"tiac-ocK-of-scnrke" of the ve petroleum Industry's commercial vehicles hicle, and so on? had a considerably better safety record in Frequency. Acodksc* frequency should receive cottar* analysis. Operators should be challenged by imeft jafient fads as are 1939 than that of all truck transport, ac cording to statistics issued by the National Safety Council. This may or may not be summarized anaiaaBy by the National Safety because of better driver selection and train CbuocS. ing in the petroleum industry. But assuredly Tcchrmcml Forts, Keeping abreast of the advance an Rndmwcaf lenowledge is of obvious importance. Consider, for example, the prob lem of slddda'qt. Mach is being accomplished by various agencies fo* the Society of Automotive Engineers) by way of improve ment of our of the behavior of the vrhirlr an various types of high ways and under various conditions of weather. Modi valuable daHt can be ob tained from romance rtvnpm.'yc and other sources. AQ sacb data can easily be trans lated for the benefit of the driver. Signalling and Positiontug. The excellent point made by Mr. J. Willard Lord in a paper delivered last Maty in Lansing, Mich we can conclude that inattention is present to a very negligible degree, if at all, because of the nature of the load carried. Similarly, the pamphlet "Motor Carrier Accidents" covering the calendar year 1938, issued by the Interstate Commerce Commission con cludes, from its great mass of statistics, that "apparently more care is exercised by the truck driver daring the winter months than when the highway is not in a hazardous condition." Here again is an illustration of the type of specific facts which should be presented to drivers,--and which if force fully portrayed will be remembered and, therefore, will contribute toward a lower ac cident rate. igan, deserves more interest in our driver training. He stresses the point of the driver giving a more adequate knowledge to others Alertness, Defensive Driving. A man once stated that rule No. I on the highway for all drivers should simply be this, "Drive at 98 29th National Safety Congress all limes, oil the assumption that everyone on the highway with the exception of your self is an imbecile." Of course, that badly overstates the ease but we must take meas ure* to cultivate a deeply ingrained habit of alertness. Adverse Legislation. Alf concerned, from the driver to the chief executive, should know the effect of poor driving on adverse legislation and regulation. This is a matter of tremendous potential consequence which receives far too little discussion. Public Relations. I have seldom heard a driver talk which effectively handled this important question of the driver's influence on public relations. Yet is there anyone who cannot recall at least one instance of the adverse commercial effect of driver arro gance? This matter of public relations,--of cour tesy. is again a subject which can and should he tied down to a tactual basis of presenta tion to drivers. There is no sound reason for ignoring it in driver training programs, or for leaving it to the tender mercies of vague and mi-tv generalization. Programs and Procedures Measures must be taken to enhance the pride of commercial vehicle drivers in their work. Mere knowledge of the techniques of driving, important though they obviously nre.js insufficient. Although there arc many notable excep tion. it would scum fair to state that in gen eral, so-called "training" has been limited largely to exhortation, preachment, driver safety "pep talks." and the like.--followed ly punishment lor a responsible accident. As a matter of sound and practical psy chology, will \vc not all admit that too many driver-instructional talks have been stodgy and dull, have carried the dramatic impact of a telephone directory, and have involved the constant use of the word "don't"? Won't we agree that .in place of this ever present negative \vc should substitute positive and informative facts, carefully prepared with the object of proving to the driver that his work is dignified and deserves being termed an art ? Rules. Rules must exist. They must be /air, and must be carefully and constantly drilled into the drivers. But there should be no compromise if they are broken. There is as much fallacy in the old saw that "Rules arc made to be broken" as there is loose reasoning in the common half-truth "prac tice makes perfect." Rules should be explained by charts, by photograph, by road demonstration, by ob ject lesson. Rules that have been broken should be reviewed carefully, in order to determine whether modification, or stricter en forccment is in order. There should be periodical physical ex aminations of all drivers, and they should be pointedly advised as to the importance of keeping in good trim. Supervisors should rather frequently ride with drivers,--especially the "accident-prone." Drivers with good records should ride with those having poor records. Records. That adequate records, contain ing genuinely useable data, should be kept is obvious. But it would be well to point out to smaller operators the very useful ma terial which they can obtain from their in surance carriers. Many insurance companies arc willing and glad to furnish this data and also to make occasional vehicular inspection-. Driver Clinics. Of course, very few fleet owners can afford to operate anything com parable to a driver clinic. This is not to dem the undoubted importance of clinical procedure. On the contrary' it is probable that many companies can, ii they only will, organize a definite program of driver en lightenment and training which will have at !ea>t some of the effect of a clinic. Driver Meetings. Driver meetings should he reasonably frequent, should permit free discussion, and above all should involve carefully planned schedules of genuine!)' en lightening talks. Broad generalisations, as well as detailed matters of driving technique must be han dled in these meetings, but both are subject to something more tangible and penetrating than a platform speech. Take the word "courtesy" for example. Would it not make a driver think more deeply it he were asked the question,--and made to answer it in writ ing, "Why should I not be too close to the corner in stopping before a red light?" Y'crbal and written quizzes are of great importance and I recommend that they be incorporated into specific, rigid, procedure, so that highly important facts may be made Commercial Vehicle Section 99 to sink in. They simply cannot be driven home by speech making alone. Furthermore; if properly organized and supervised, driver courts, possessing an ele ment of self-government, can be very effec tive in the promotion of careful driving, and improved attitude. Presentation of National Safety Council Awards in the 1939 1940 National Fleet Safety Contest Outstanding facts in the contest were commented on by Mr. Lew R_ Palmer, Con servation Engineer, The Equitable Life As surance Society of the United States, Mew York City, and Past-President of the Na tional Safety Council, as follows; The Ninth National Fleet Safety Con test, sponsored by the Commercial Vehicle Section of the National Safety Council, was brought to a close on June JO, 1940. 1,340 fleets participated! in the Contest. They operate well over 91,000 vehicles. This commercial vehicle army traveled 47,000 miles per accident--not quite as good a record as they bad the previous year, but -till a striking proof that "gentlemen of the highways" is not just a catch-phrase. Fur thermore, the slight increase in accidents reported for these commercial operations was considerably less than the increase in accidents experienced by the genera! driving public. there are 43 groups in which awards were earned. The rules of the contest provide that the winner in each group shall be the fleet having the lowest number of accidents per 100,000 vehicle-miles. In the event that two or more fleets arc tied lor first place in any group, the winner is the fleet which operated the largest number of vehicle-miles. As in the previous year's contest, all fleets that reported a perfect record during the year, but are not receiving a plaque, are getting a certificate in recognition of their achievement. Just as in last year's Contest, die records of winning fleets were verified through their insurance carriers. A new feature of this year's contest is the Certificate of Merit. These special cer tificates are being awarded to the 14G fleets which, with the winners, made up the top 20 per cent of the rankings in each Cohicm group. Ever since the first Contest--a six-month one hack in 1932--this national competi tion hats had a steady growth--in number oi competing fleets--in number of vehicles entered--in miles operated--and in value to the competitors themselves. As these contests continue tbejr growth. 1 know I'm safe in predicting that accident rates will l>ecome even lower--and these will repre sent cumulative savings in human life and limb, and just plain dollars and cents. The purpose of these contests is to help reduce accidents bv fostering competition between fleets with similar types of opera tion. For the sake of fair competition, all contesting fleets were divided into 19 divi sions--first, by type of vehicle and geo graphical area, and second, according to the nature of the operations. Three of these di visions were further sub-divided into four size groups, ranging from large-mileage fleets to small-mileage fleets; two were divided into three size groups: and U were divided into large and small fleets. Thus, Mr. Palmer then, in the name of the National Safety Council, presented hand some Bronze Plaqncs to the winners oi first place In the contest, and Certificates of Merit to winners of second and third place, and also to* those deserving Honor able Mention, as given in the list* below: For-Hire Inter-City Trucking Division LARGE FLEETS: The Winner--Perfect Record--Pioneer Motor Service Inc., Rock Island, III. Second--Dealers Transport Company. Kansas City, Mo. SMALL FLEETS: The /Firmer--Perfect Record--Bucking ham Transportation Co. of Colo., Inc.. Billings, Mont. Second--Perfect Record--Buckingham Transportation Co. of Colo., Inc.. Casper. Wyo. Honorable Mention--Perfect Record-- Ameen Transfer Line. IshnrmJno* 100 29th National Safety Congress Private Inter-City Trucking Division LARGE FLEETS: The Winner--Perfect Record--The Timken Roller Bearing Co., Canton, Ohio. Second--Texas Long Leaf Lumber Company, Oakhurst, Tex. SMALL H^EETS: The Winner--Perfect Record--Trexler Farms. Springwood Division, Allentown, Pa. Second -- Perfect Record -- Trexler Farms, Miscellaneous Operations, Allen town, Pa. Honorable Mention--Perfect Record-- Sloss Sheffield Steel & Iron Co., Retail Stores Division, Birmingham, Ala. For-Hire City Tracking Division LARGE FLEETS: The Winner--City Messenger Company, Detroit, Mich. SMALL FLEETS: The Winner--Perfect Record--South ern California Freight Lines, Indio Div. Private City Trucking Division LARGE FLEETS: The Winner--Perfect Record--U. S. Navy Yard, Washington, D. C. Second--Perfect Record--U. S. Navy Yard, Puget Sound, Wash. Third--Perfect Record--U. S. Navy Yard. Philadelphia, Pa. Honorable Mention--Perfect Record-- U. S. Navy Yard, Mare Island, Calif. SMALL FLEETS: The Winner--Perfect Record--Westinghouse Electric & Mfg. Co., East Pitts burgh, Pa. * Honorable Mention--Perfect Record-- Sloss Sheffield Steel & Iron Co., Man ufacturing Dept, Birmingham, Ala. Bakeries Division _ GROUP T: The Winner--Schulze Baking Co., Pe oria, 111. Second--Schulze Baking Co., Omaha, Neb. Third--National Biscuit Company, Sy racuse (N.Y.) Bread Bakery. GROUP II: The Winner--Weber Baking Co., San Bernardino, Calif. Second--Continental Baking Company, Garksdale, Miss. Third--Continental Baking Company, Waterloo, Iowa. GROUP III: The Winner--Perfect Record--Na tional Biscuit Co., Charieston (S. C) Second--Junge Baking Company, Joplin, Mo. Third--Continental Baking Company, New Bedford, Moss. GROUPIV: The Winner--Perfect Record--National Biscuit Co., San Antonio, (Tex.) Second--Perfect Record--Jtmge Baking Company, CoffeyviUe, Kant. Third--Perfect Record -- Continental Baking Company, Hostess Cake Depot, Berkeley, Calif. ' Honorable Mention--Perfect Record-- Continental Baking Company, Hostess Cake Depot, Sacramento, Calif. Honorable Mention--Perfect Record-- National Biscuit Co., Niagara Falls, N. Y. Beverages & Ice Cream Division LARGE FLEETS: The Winner--Castles Ice Cream Co., Garfield, N. J. SMALL FLEETS: The Winner--Monmouth Toe Cream Co., Asbury Park, N. J. Coal & Ice Division LARGE FLEETS: The Winner--The Union Ice Co., Ven tura County, Calif. SMALL FLEETS: The Winner--Perfect Record--Central California Ice Company, Bakersfield. Honorable Mention--Perfect Record-- Southern United Ice Co., Meridian, Miss. Honorable Mention--Perfect Record-- Central California Ice Company, Turlock & Modesto (Calif.) Division. Honorable Mention--Perfect Record-- Southern United Ice Co., McComb, Miss. Dairies Division LARGE FLEETS: The Winner--Muller Dairies, Inc., New York, N. Y. Second--Dairyland Milk Plant, Dallas, Tex. Commercial Vehicle Section 10L Third--Whiting Milk Company, South Shore Division. SMALL FLEETS : The Winner--Perfect Record--Sweitzer Creamery Company, Detroit, Mich. Second--Perfect Record--Sapplee-WillsJones Milk Co., Trenton, N. J. Third--C A. Straabel Company, Green Bay, Wis. Laundries Division The Winner--Ripley's, Inti, Topeka, Kans. Second--Inceda Laundry & Cleaning Company, Houston, Tex. Newspaper Division The Winner--The Canton Repository, Canton. Ohio. Petroleum Division LARGE FLEETS: The Winner--Panhandle Refining Com pany. Central Texas Division. Second--Panhandle Refining Company, West Texas Division. Third--Magnolia Petroleum Co., North ern Division, Dallas, Tec. MIDDLE-SIZED FLEETS: The Winner--Perfect Record--Pan handle Refining CoH New Mexico Div. Second--Shell Pipe Line Corporation, Mid-Continent Area. Third--Golf Oil Corp., Golf Produc tion Div., Ft. Worth. Tex. Dist SMALL FLEETS: The Winner--Perfect Record--United Gas Pipe Line Co, San Antonio Dist. Second--Perfect Record--United Gas Line Co.. Houston, Dist. Third -- Perfect Record -- United Gas Pipe Line Co., Wichita Falls Dist. Honorable Mention--Perfect Record-- United Gas Pipe Line Co., Monroe Dist. Honorable Mention--Perfect Record-- United Gas Pipe Line Co., Southwest Louisiana Dist. Honorable Mention--Perfect Record-- Panhandle Refining Co., Oklahoma Div. Honorable Mention--Perfect Record-- Shell Oil Co., Inc.. Norco, Louisiana. Public Utilities Division LARGE FLEETS: The Whinner--The Toledo Edison Co., Toledo, Ohio. " Second--Utah Power & Light Com pany, Salt Lake Gty, Utah. Third--Florida Power & Light Com pany, Miami, Fla. MIDDLE-SIZED FLEETS: The Winner--Missouri Public Service Corporation, Wanensburg, Mo. Second--Central States Power & Light Corporation, Tulsa, Okla. Third--Godfrey L Gabot, Inc., Charles ton, West Virginia. SMALL FLEETS: The Winner -- Perfect Record -- Cir\ Light & Water Utilities, Ft- Wayne, Ind. Second--Perfect Record--East Coast Telephones, Inc., Warsaw, Va. Third -- Perfect Record -- Superior Water, Light and Power Co., Superior, wis. Honorable Mention--Perfect Record-- Shell Pipe Line Corporation, Telephone & Telegraph Division. Honorable Mention--Perfect Record-- Electric Light Department, Cit> and County of Honolulu. Honorable Mention--Perfect Record-- Virginia East Coast Utilities, Inc.. Kil marnock Division. Honorable Mention--Perfect Record-- Chicopee Electric Light Department, Chi copee. Mass. Honorable Mention--Perfect Record-- Northwestern Public Service Company. Huron, South Dakota. Honorabte Mention--Perfect Record-- The Key West Electric Company. Kcv West. Fla. -' ' Retail Stores Division LARGE FLEETS: The Winner--United Parcel Service, Pasadena, Calif, Second--United Parcel Service. New ark South, N. J. Third-- United K A Service. White Plains. X. Y. 102 29th National Safety Cotigress SMALL FLEETS; The Winner--United Parcel Service, Ventura & San Bernardino, Calif. Second--United Parcel Service, Sail Diego, Calif. Third--United Parcel Service. Long Beach. Calif. Wholesale Division I ARC.F. FLEETS: The Winner--1. E. Bejin Cartage Co., Inc.. IVtroit, Mich. SMALL FLEETS: Tin If 'iiiu.-r--Perfect Record--Booth Fisheries Corp., Washington-ldaho Div. Inter-City Bus Division LARGE FLEETS: The 11 'inner--Southeastern Greyhound Line?, Lexington. Ky. Second--Pacific Greyhound Line?. Div. Xo. 3. Los Angeles. Calif. SMALL FLEETS: The Winner -- Perfect Record -- Lai Wga--Tonopah-Reno Stage Lines, Las Vega?-. New . Second--Pacific Grev hound Lines, Div. Xu. 1, E! Paso, Texas. City Bus Division LARGE FLEETS: The \dinner--Wisconsin Public Service Corporation. SMALL FLEETS: The I Vinner -- Perfect Record -- Toyc Urn-. Yellow Cab S: Gray Line Tours, Xew Orleans, La. //onorabie .Mention--Perfect Record-- Charlottesville & Albemarle Bus Co., GwrlottesviHo. Va. Taxicab Division The Winner -- Perfect Record -- Toyt J'.ru- Yellow Cab Company, New Orleans, La Honorable Mention--Perfect Record-- Blue & White Cab Company, Bismarck, X. D. Passenger Car Division--Eastern Area GROUP I: The Winner--Socony-Vacuum Oil Co., Inc.. White Eagle Div., Kansas City, Mo. Second--Socony-Vacuum Oil Co., Inc., Albany, Div., Albany, X. Y. Third--U. S. Engineer Depl., Lower Mississippi Valley Division. GROUP II: The Winner--The Atlantic Refining Co., Southern Div,, Philadelphia. Pa. Second--Socony-Vacuum Oil Co., Inc., Lubrite Div., St. Louis, Mo. 77iird--Standard Oil Company of New Jersey, Virginia Division. GROUP III: The Winner -- Perfect' Record--City Light & Water Utilities, Ft. Wayne, lnd. Second--Perfect Record--C. A Straubcl Co., Green Bay, Wis. Third--Perfect Record--South Caro lina State Highway Department. Central District. GROUP IV: The Winner -- Perfect Record -- New Haven Gas Light Co.. New Haven. Conn. Second-- Perfect Record -- American Utilities Service Corp., Savanna, Illinois Third--Perfect Record--Clover Fanu Dairy Co^ Memphis, Tcnn. Honorable Mention--Perfect Record-- Ebling Creamery' Company. Detroit, Mich. Honorable Mention--Perfect Record-- Nashville Pure Milk Co., Nashville, Tenn. Honorable Mention--Perfect Record-- Badger Brodhead Cheese Co.. Monroe. Wia. Honorable Mention--Perfect Record-- Charleston Oil Co., Charleston. S. C. Honorable Mention--Perfect Record-- The Patent Scaffolding Company, Inc. Chicago, 111. Honorable Mention--Perfect Record-- Westinghouse Electric & Mfg. Co., East Pittsburgh, Pa. Honorable Mention--Perfect Record-- U. S. Navy Yard, Washington. D. C. Honorable Mention--Perfect Record-- Shell Oil Co., Inc., East Chicago Refinery. Honorable Mention--Perfect Record-- U. S. Navy Yard, Philadelphia, Pa. Honorable Mention--Perfect Record- Manchester Gas Company, Manchester, X. H. Commercial Vehicle Section 103 Passenger Car Division--Western Area GROUP I: The Winner--Magnolia Pipe Line Comjwny, Dallas, Texas. Second--Magnolia Petroleum Company, Western Division, Dallas, Tex. Third--Gulf Oil Corp., Gulf Produc tion Div.. Ft. Worth, Tex. Dist. GROUP II: The Winner--United Gas Pipe Line Company, ftccville District. XiVimd--Panhandle Refining Company, Central Texas Division. Third--Shell Pipe Line Corp., Tele phone & Telegraph Division. GROUP III: The Winner--Perfect Record -- Shell l'i|*c Line Corp., Mid-Continent Area. second--Perfect Record--Northwestern Yca-t Co.. South Central Div. Third--Perfect Record--Loyalty Group, Snuhwrstcm Dept., Dallas, Tex. Honorable Mention--Perfect Record-- l cntral States Power & Light Corn., TuRa, Okla. Honorable Mention--Perfect Record__ United Gas Pipe Line Company, Wichita Falls District. GROUP IV: The J'inner--Perfect Record--Hiram C. Gardner. Inc., Denver. Colo. Second--Perfect Record--Amarillo Gas Company, Amarillo, Texas. Third--Perfect .Record--Board of Wa ter Supply, City and County of Honolulu. Honorable Mention--Perfect Record-- Northwest Cities Gas Co., Walla Walla. Wash. Honorable Mention--Perfect Record-- SL Louis Dairy Co., St Louis, Mo. Honorable Mention--Perfect Record--. Ajax Pipe Line Corp., Tulsa, Okla. Honorable Mention--Perfect Record-- Southwestern Transportation Con Texar kana, Tex. Honorable Mention--Perfect Record-- Peoples Light Co., Davenport, Iowa. Honorable Mention--Perfect Record-- Shell Oil Co., Inc., Honolulu Division. Honorable Maliion--Perfect Record-- Shell Oil Co., Inc., Norco, La. Honorable Mention--Perfect Record-- Borden's Dairy Delivery Company, Bur lingame Division. Honorable Mention--Perfect Record-U. S. Navy Yard, Mare Island, Calif. Honorable Mention--Perfect Record-- Borden's Dairy Delivery Company, San RalacI Division. Honorable Mention--Perfect Record-- Borden's Dairy Delivery Company, Fresno Dj\ ision. Honorable Mention--Perfect Record-- l\ S. Navy Yard. PuRet Sound, Wash TUESDAY A1-TERXOOX SESSION Octobers, 19-10 Presiding: J. M. Rarkeh, Director, Fleet Operations, Washburn Crosby Co.. Central Di vision of Ceneral Mills, tnc,, Chicago. Getting Safety Across to the Driver-Salesman By R. c. HAVEN . Safety Engineer, Continental Baking Company, New York, N. Y. In the beginning we must realize that getting safety across to the salesman-driver differs in many ways to the job of reaching the average truck driver. Let us assume of course that both types are high grade men, for responsible fleet operators do not trust their valuable equipment and cargoes to irresponsible drivers if they know it. It is true that so far as traffic rules ami regulations are concerned, the problem is the same for both types. The marked dif ference i> in the characteristics of the men 104 29th National Safely Congress and duties the)' arc called upon to perform. health, has an alert mind and is willing to Keep in mind that our discussion here has learn. to do primarily with the men's minds and Because of certain barriers of selection driving behavior and not with mechanical known to most of you, we cannot always devices. control the first item but certainly we can Let us make at least a partial comparison between the two' types of drivers: 1. He is primarily a salesman and sec ondly a truck driver. In other words, driv ing a truck to him is a means to an end. 2. Being primarily a salesman he must be a student of sales, actually taking time to study sales methods. The regular truck chauffeur has no sales problems to worry about . subject the applicant to a rigid physical examination and if we find him unwilling to learn, can take wliatever steps are neces sary. I will not go into the physical exam ination except to say that all applicants should be able to see with or without glasses, have botli arms and legs, be of the proper stature and otherwise in good health. As to alertness of mind and willingness to learn, these need no further elaboration. 3. As a salesman he must know all about Some Fundamentals the product he sells as well as company It makes little difference whether wc are policies. starting a safety program among a large 4. He must be a diplomat and psycholo number of salesmen drivers or whether we gist since he deals with many different types are trying to improve a safety program-- of human beings which make up the cus already in progress. There are a few fun tomers he serves daily. damentals which should be remembered: 5. The salesman-driver liamllcs money 1. To get the best and most lasting re and keeps record* The other type of driver sults we must eventually reach our drivers does little or none of this. through individual analysis and individual 3. He makes many regularly scheduled education. >tops daily whereas the ordinary truck 2. We must have a plan to work and then chauffeur does not, although he may con follow it consistently. This plan should fine his activities to a certain territory. be flexible enough to admit changes when 7. As a rule the salesman-driver is more agile, quicker of action. 8. It is only on few occasions that he has a helper and has on his mind the many details pertaining to sales as he pilots his iruck through traffic 9. He is required to maintain a neat per sonal appearance at all limes whereas the other type cannot always do this. Of course the truck chauffeur and other drivers of trucks, such a* used by special delivery and service companies, have .things in rnntend with that the salesman-driver doc- not; handling heavier (rucks which are more difficult to back into Mnall areas; lift ing heavy objects, and repairing break down? on the road; all of which involve driving and other accident hazards. At the beginning let u> remember--we arc dealing with men's minds---their human traits and behavior rather than mechanics involved m tlte operation of a truck. We arc assuming for the moment that the truck which the salesman will handle is always in perfect mechanical condition. necessary. 3. The plan should be based on (he idea that results cannot be achieved over-night. Fleet operators make a mistake if the)* think they can suddenly change bad Habits i long standing or develop and maintain safety ideas that may be new to the sales man. . 4. The plait for safety' in any fleet should be hased on certain basic principles among which we might mention: a. Knowledge of our problem. b. Knowledge of our men. c. Common sense and fair play. d. Humanitarian principles. e. Economics. 3. Getting safety across to the salesman is nothing more than selling him an idea. The approach should be based on the fact that the salesman-driver is less able to stand a personal injury loss than the com pany is able to stand a property damage loss. We should not make the mistake of first emphasizing the company accident loss. 11 we are to succeed in making and main 6. Pride of accomplishment is also a taining a safe salesman-driver we must, as major factor in obtaining lasting results Ur as possible, select a man who is in good 7. From the psychological standpoint it Commerciol Vehicle Section 105 is well to consult the salesman-driver when compiling safe driving rules and regula tions. 6. In all of us there is a human desire for recognition. It goes without saying, therefore, that suitable recognition in the form of awards should be provided. Educating the Salesman Who should teach the driver? Who should be responsible for his driving behavior? The answer to this is, in my opinion, the sales supervisor. There are a number of logical reasons why the driver's immediate superior should do the educational work: 1. The supervisor is the salesman's first line of defense and, therefore, should fur nish the necessary information, inspiration -and know-how. 2. It is natural for an employee to look to his supervisor for guidance. 3. Salesman-drivers prefer to receive safety and other instructions from this source. 4. Orders or instructions received from more than one source may caose confusion. 5. Better control of the employee's driv ing behavior results from one-man guidance. 6. Instructions can best be followed through by the supervisor. 7. It is possible that the salesman-driver may lose confidence in the supervisor if some outsider (in the company) does the super visor's job of educating his men. 8. If the supervisor is qualified to hold his job he will prefer to assume the re sponsibility. ' So it would seem to me that our big job in getting safety across to the salesmandriver is to first educate the educators-- the supervisors. They most be equipped with every known safety procedure and material that will enable them, in turn, to teach the men for whom they are respon sible. Of course, the supervisor must know his job. For instance, he must have suffi cient experience to enable him to issue in structions based on knowledge. He must know the safest way to do the things he is asking the salesman to do and must real ize that every salesman-driver has a dif ferent mentality. The supervisor must be aquainled with the salesman-driver's per sonal habits and understand bis every whim. He also must have before him at ail times not only the salesman's family history but also a record of his driving experience, such as number of accidents, causes, responsibil ity, cost, etc. He must be sympathetic and have the proper attitude; getting results through kindness rather than fear. Finally, he must learn to be explicit when talking to the salesman, making sure that the latter understands what he is saying. It goes without saying that management must take an active interest in the safety program, provide means to educate the supervisors, keep accurate accident frequency' and cost records, supply the proper educational mate rial, (posters and other literature) and fur nish the necessary awards, rewards, etc. No program will succeed without manage ment's enthusiastic cooperation and material aid. In our own company our procedure is about as follows: 1. We select for salesman-drivers men of the salesman type. 2. We decide upon their possible qualifi cations, first upon their ability to drive a truck, secondly upon their sales ability. 3. They are subjected to rigid physical and mental examinations. 4. They are thoroughly schooled in sales procedure and the use of all accident forms before bring put on a route. 5. When first given the responsibility of a truck and assigned a route, they are given an assistant and are not permitted to drive their truck until they become familiar with their customers and other sales details when away from the bakery, until the)* have adjusted themselves to their new sur roundings and feel comfortable behind the wheel. 6. Tbrir behavior is constantly watched by the supervisor. ' 7. Dose watch is made of their routes as to growth and a check is made of all accident hazards and necessary changes are made in the directions they drive when to do so will eliminate traffic hazards. 8. As an incentive for continued safe driving and recognition for same, our pin award plan provides a certificate for six months driving without a chargeable acci dent, bronze pin for a-year, silver for two years, gold pin for three, a letter from the president for four years, a gold pin with a diamond for five years. The five year pin contains a removable numeral in the center and it is raised as a man continues his clear record year by year. This plan started Janu ary I, 1932. On January I, 1912 those men who have gone ten years without a chargeable accident will be presented with 103 29th National Safety Congress a Hamilton pocket watch. The dial will bear the words. "Safe Driver" and the bade will be appropriately engraved including the salesman's name. For the Supervisors a beautifully engraved Certificate of Apprecia tion with the company's gold seal is pro vided. Only the Supervisor having the best record at his bakery wins thi* award. An honor roll is provided for those Man agers developing the best records for cer tain accomplishments. How to Organize and Carry on a Practical Maintenance Program By R. H. CLARK General Superintendent of Transportation, Consolidated Edison Co. of New York, New York City When Alfred P. Sloane was asked why he did not produce a small car consisting of the mechanical neccisities and a body with all chromium plate and frills removed; he ad vised that it would not pay. With the in creased ability of the manufacturers to dis guise a small car under a dashboard weighted down with the latest types of streamlined, repair delving, aviation looking instruments, fleet operators liave been tearing their hair in exasperation waiting for someone to pro duce such a vehicle. Aside from the cost of maintenance, some companies thought the dressed up type of car \\a- much too undignified and lent a tone of frivolity not consistent with their business. Mr. Sloane indicated that the pub lic demand for a big car, wrapped in a small package, was so much greater than the fleet operators demand for the other, that pro duction would be thrown out of gear to make this specialty. Also, that general ac ceptance of the dressed up vehicle was in the long run more economical since the trade-in or second-hand value would be greater. It is true that this applies principally to the small passenger cars and not to large com mercial vehicles, each of which is, in many respects, a completely original unit depend ing upon its application. Tl does indicate, however, that in spite of all that has been said about the highways and hyways being dogged with business ve hicles, John Q. Public, as an individual oper ator, is <tilt the predominating factor to be considered in the safe operation of our ve hicles on the public highways. It is a. pity lliat this group of individuals, each of whom considcis himself an automotive engineer, is not represented here today. Today executives have become so con scious of the hole into which money can be poured to maintain a fleet of trucks, that every item of expense is eyed with the hope of bringing about further reductions. Too many crackpot ideas and theories have been foisted upon transportation executives with a view to eliminating 25 per cent of the oil bill, cutting gas consumption in halt or eliminating carbon by means of a prayer and a turkish bath. Executives have found there is a necessary expense which they recognize as legitimate and reasonable for their par ticular business and transportation applica tion. The Safety Program Hand in hand with the growth of trans portation and tlic study which leads to the establishment of its proportionate share of the total expense of a business, the recog nition of the necessity for a safety program came into the picture. For a time safety campaigns and periodical concentrations on safety first meetings, steps in the develop ment of present safety methods, were inef fective and expensive. Executives were pay ing plenty for experience. In this case, however, they paid more cheerfully as the idea ot the inevitability of accidents was fast dwindling. Tliey recognized that acci dents, and particularly industrial accidents, could be reduced if not entirely eliminated. A motor vehicle maintenance program operating under a transportation superin tendent with his staff on one hand, and a group of drivers on the other seem to be the generally accepted type of organisation for operating a fleet today. Whether the mechanical group is on the company payroll Commercial Vehicle Section 107 or whether the work is given out it beridt ihc point. In tlte long run this is purely a matter of economics and the company pays iltc bill anyway. Geographical location, tax rate*, labor laws, insurance rates and scat tered concentrations of vehicles over large areas are factors in determining a company's policy in this respect. At a forum conducted under the auspices of the SAE last spring for the benefit of Public Utility Fleet Oper ators this subject was discussed without ar riving at definite conclusions. There were opinions both pro and con which in most cases began or ended with the statement. "We have found the most economical thing to d. etc." The most economical thing to do m Xew York may not be true in Chi cago. There is one danger that should be guarded against and that is the pride that .'O often accompanies the well equipped shop. All too often millers, lathes or grinders arc for greater economy. However, the drift liack to a more sensible application is ap parent. The electric street truck, which properly applied, has always made money tor its owners and is slowly but surely returning in a modem form to certain fields of busi ness that never should have toyed with the idea of a gas truck. But so many purchases of the electrics were made to obtain the resulting operating economies in fields where only the gas truck should have been considered, that for a time there was a lull, while ihc mal adjustment underwent q period of observa tion and correction. Certainly none of the advantages of economy and safety of anygiven make of vehicle either gas or electric can really be obtained by applying it to an overrated job. Let us remember the word application. purchased and are only used occasionally Thia type of equipment was Imilt for pro Preventive Maintenance duction work and cannot pay for itself when <*nlv used occasionally. However, this too is more or less governed by local condition*, depending upon the outside services avail able. The important thing is not how or bv whom the work is done, but that it is done economically under the control of the super visor in cliargc of transportation. The economical and safe operation of any fleet of trucks is dependent upon the me chanical maintenance program. Systematic preventive maintenance avoid? premature de preciation and insures a longer mechanical life. I make this statement because l feel there is no other alternative. Maintenance programs, based upon a strictly "repair Automotive maintenance organizations when necessary system," have been out rarely spring up over night. In most busi moded. Today it is not a question of sys nesses today the automobile picked up where tem of preventive maintenance as compared the wagon left off. In most instances the to a system of repair. The question is how <table boys, wagon builders and drivers of the early days found they had to lenm a new technique. For our purpose we may say that there are three outstanding stages in the history of a motor vehicle. We shall not include manufacture as that is another problem. They arc: Selection or purchase, determined sufficient is, or how much better can we make our preventive maintenance system. The idea of prevention of a mechanical breakdown is the .all important factor in maintenance work. With the exception of heavy duty equipment a complete overhaul today represents accumulated neglect. Me chanical adjustment, whenever posable. must by application: Maintenance hi operation; be made by anticipating mechanical failure. Retirement. The extent to which negligence in Probably everyone here will recognize the a repair in time, and which i- directly re incongruous position of the transportation sponsible for los* of life and property due operator who, given a piece of equipment to motor car accidents, is one of those in rated at a ton and a half, day after day is tangible things that can only be guc-scd at. called upon to stretch the ability to limit* The negligent who get by arc lucky, and far beyond the extra margin of safety built those who do not leave so little evi in by the manufacturer. Chief mistake, dence that the cause of mechanical failure either intentional or otherwise, is overload often lost in a pile ot broken alas* ami ing. Leader? though wc are in tlte applica twisted metal. tion of the motor vehicle to industry, for the past few years there has been a tendency to buy on the light side of a given make Pre ventive maintenance work schedule* arc in most cases based on ihc miles tnncllcd and, at the end of certain prearranged 108 29th National Safety Congress periods, vehicles arc inspected for certain items. Ju other cases, the inspection and repairs are made on a time basis. It is unimportant whether the controlling factor is a mile or an hour, since both of these are merely accounting factors that I shall refer to later. A schedule of preventive maintenance should be so laid out in the mechanics* working schedule that there util be no inter ruption of service to the department or oper ator and no rush on the part of the me chanic. I believe that the nicclianics, who are responsible for the mechanical excellence of well organized fleets, are so familiar with them that it is unessential to use the elabo rate printed forms so often recommended when preventive maintenance systems arc installed. Xo preventive maintenance system could l>os$ib1y work unless a record is maintained of all types of mechanical failures, road jobs and adjustments that occur between each cycle, so that the responsibility for each job can be definitely placed. This will keep the mechanic and his foreman on their toes and it will eliminate the inquiring mind. There are certain fundamental things which the management should prescrilie as the required mechanical work in every pre ventive program. Many of these can be determined by the nature of the fleet and the nature of the business. Some of the suggested required items might be changing the oil filter cartridge, changing the battery, general lubrication, checking regulation car equipment and tools, and any other items that the management might find desirable. In our own organization a car undergoes preventive maintenance inspection every ten weeks, at which time a mechanic and a helper inspect and make the necessary re pairs or adjustments immediately. What is the nature of repair under this system? Units changes if necessary, motor tune-ups, brake adjustments, brake refining, accessory repairs, ignition and electrical ad justments, general lubrication including in spection of rear end and transmission, clutch adjustments, general tightening of body, light body repairs and tire inspection arc all items ihat might have to be performed under pre ventive maintenance, in fact any mechanical operation. It is interesting to note how, when applied to a fleet of older trucks, the repairs required between cycles also drop off. The desirable situation, of course, is to apply preventive maintenance to a grad ually changing fleet, so that eventually aD car.- purchased will have been acquired while the preventive maintenance system is in effect. Daily driver complaints constitute about the only inexpensive method of determining the repairs required from day to day. Therole played by the driver, in advising the mechanical group of the peculiarities is the operation of his vehicle, is another step n Imildinjr up tong vehicle life. Preventing little ones from developing into big ooo t* essentially (lie preventive maintenance tpint. Mechanic* who are working under preven tive maintenance tend to become more live to poor adjustments, discern more rap idly. develop a critical eve and ear aad to realize the importance of ".As oin i-t prevention i> worth a potznd of cm* ** We find, therefore, that repair* tan wat two genera] classes. TboiC made oe the preventive maintenance schedule and the correction of the daily chanflew ompiaiet' or running repairs. I have iocad <t able to divide the mechanical iutrc * cordaiKc with tlicse two type* of ntfcr la this wav. a mechanic doing an in-pec***-, on one night is not encouraged to Souk t**c opportunity to sneak back and eorrert .* mistake the following night. I f as m*p*irt** is incomplete, it is far better for the -cSrdulc to lag for a day or two. Mechanicencuuraced to ask for more time if reqetred. A thorough job is more uppcctact than aa up-to-date scliedole. When a mechamc hareleased the car it is presumed, withm rea Min. that it U in good running order t ne-.t tlie next inspection all subsequent repairare potentially his faoh. Individual rmpoosibility has been encouraged and I find tna: the men generally take great pride m assum ing it. A mechanic should not be down to a definite routine in the performance of his preventive maintenance, work. For his guid ance and memory. it might be well to list the items that may be subject to attention, but as far as arranging the work in accordance with some prearranged plan, I feel it is un necessary and limits his output. Limits him because alt too often something not listed requires attention. He should have an op portunity to work any part of the vehicle that his experience tells him will not survive Commercial Vehicle Section 109 another inspection. You will say perhaps that too much authority has been delegated to the individual and that the foreman's word must mean very little. The fact is quite the opposite. In these days of unions and labor disputes, this idea goes a long way toward making each man feel that he is sharing in the responsibility of keeping the wheels rolling. He appreciates that he will have an opportunity for a hearing in the presence of his foreman, at which time he will have to be right Hours vs. Miles Because of the nature of our business the average mileage per car, per year is low, and for this reason "hours in service*' is the basis for final cost analysis. Mileage has be come a standard ox comparison for physical evaluation when a car is about to be retired. It Is also for this reason that our mainte nance schedule is operated on a time basis. Arbitrarily presuming that for every nine tr% a Dtvhaiuc i$ employed, a garage oper- tdn 3$ vehicles would require 22 me- ehantr* On the basis of an inspection every 14 wtrks ov approximately every' 50 work- lessness on the part of the mechanic on in spection, the mechanic and his foreman will be given an opportunity to explain it the fol lowing night. The distribution of the ratio of cars to mechanics may shift from one garage to another as occasions and emergencies re quire. Three and a half years of application to the baste principle of preventive maintenance in this field, applied to both old and new vehides, has eliminated much of the guess work in mechanical repair. Costs have been reduced, time out of service has been mini mized. Preventive maintenance spreads automo tive maintenance activity over a 12-month period, ironing out seasonal labor peaks; reduces future costs by easing the severity of a breakdown when it comes; creates a better spirit of cooperation between the me chanical group and the operating detri ments and instills into all a safety conscien tiousness that prevails 12 months out of the year. An organization with a low labor turn over, and a high average (or years of indi vidual service will benefit by it. at dayv tt moald he necessary lo schedule the wrk ac cbe raze of four cars a day. two mat assigned to each vehicle on maintenance a crew of eight would V npqaitcd. and 14 for general repairs or `*4c crawpfanits. The eight on preventive -tasitcmpoc will work their entire eight '"XAT shaft cq the tour jobs assigned for ihat night. while the 14 others will average aboat four jobs each on various cars. Homs that won't blow, lights that won't light, doors that won't dose, brakes that won't hold, constitute the majority of the repairs falling into this group. The chauffeurs com plaint sheets are carefully checked. If it is found that the complaint h caused by care Vehicle Retirement Fleet operators have long pondered when an old vehicle should be replaced. Formulas have been written, theories of depreciation set up, applied and made workable and for a time successfully. But hovr often in just such a fleet are vehicles of one make and year disposed of while others are retained. The human element as represented by the driver, road conditions and length of differ ent routes, tendency to overload, errors in original application, inherent weaknesses at the time of purchase and the accident record are all factors entering into the hastening or retarding of the retirement .date. WEDNESDAY MORNING SESSION' October 9,1940 Rules and Tools of the Fleet Safety Engineer Presiding: H. S. Cque, Assistant Superintendent, Evening Star Newspaper Co., Washing ton. D. C. no 29th Xatiotw! Safety Congress Management's Interest and Responsibility for Safety By DON M. GOODWII.LIE Safety Engineer, The Willett Company, Chicago Management must want atetv ju*t as it wants sales; st must liave a safety engineer or a person definitely responsible for safety in the same manner and for the same pur pose as it has a sales manager. The oM idea of sticking tip a few safety posters, having orwr safety meeting a year in the garage before starting the dav's work and leasing the rest np to the insurance carrier is out of date. There must be constant follow-up by management of the safety program. This follow-up. in my opinion, consists of the interest and desire by the management for safety and the definite delegation of the responsibility for safety to one man. First, management must place the respon sibility for safety with a competent and experienced safety engineer with background and training. He should be selected by the same basic principles which govern the hir ing of any executive. Too often, and usually following a scries of accidents, a temporary hubbub takes place, and the result is that someone is hired without Hie necessary qualification* at a nominal .-alary. Or, in the smaller organizations, the job may be given to a minor foreman or clerk. He niay lack l>c proper background, plus the im portant fact that, b) di-c very nature of his previous position. He doe* not command the respect of department heads and Reneral personnel This is an evasion of respondinlity on Utc part of the management. Get the Right Man Management should hire the proper man to do the job, pay him well; and give him an appropriation for expenses, and watch for results. Unless there arc some unusual technical factors present, I believe in bring ing in a man from the outside. T realize that in small organizations this cannot be done. In that case, it may be possible to iu*tifv a full time engineer by assigning correlated activities to him such as person nel, public relations, and the handling of small claims and complaints As a final alternative, management may assign the job to an executive, such as the operating su perintendent. In that case, management mu-t acc that this individual gets some tool* the experienced safety engineer. He should attend such meetings as these; the company should join an established safety organiza tion in order to keep abreast of the lates-t developments He should cooperate closek with the safety engineering department o* ht< company's insurance carrier Some may ask how large should a flee: l*c to justify a full time engineer. That ialways a question, based on many variable*, but I should say SO units or more A full time engineer with complete au thority is management's first responsibility. At this point the job is well started. bos hardly (bushed. It h most important that the management *hould demonstrate `constant executive in terest." If we are haring a safety rncm$r or party as we caM them, I exert every effort to have the head of our cwnpany present. This interest, expressed by the giv ing up of personal time, lends pce-tiftc an*I momentum to an) safety program. Analyzing Results If any safety program results -fiouM be carefully ssnalyied and presented to the management, which, in tum has die respon* ibiUty of minutely verunniring tin? work that has been done and making *ugestiom. Do not create a department ami then forget about it; there are dollars in safety a* well a* in sale*. Man)* large fleet owner*, believe in die principle of "paying for their mi-rake?" We fed quite sliongly about this Fault) equipment, maintenance and personnel are strong accident producing factors. When any of the*e factors produce* an accident it costs management money. Management will show its desire to accept safety respon sibility bv actually paying thtough its own channels, with its own draft and clearing over Us own signatures. While I am rv>t advocating self-insurance as a general rule it seems that, by the retention of a small amount of self-insurance, a much greater interest in safety can be created in mai' Commercial Vehicle Section in agemcnt, and in turn through the whole orgaoiaation. If it cost* the company $100 by Hf own check to settle a claim caused by brake failure everybody gets stirred up about it Confidcrmg the fact that there is no real difference who pays the small claim it has aim-ay* been amusing: to me to note the difference between the way people react to a claim covered by insurance and one self insured Management should place the safety en gineer in the status of a department head, giving btm complete authorin' over all mat ters pertaining to safety, and back that authority up completely It is often said that titles mean nothing, but I believe tlvey arr a psychological aid to the safety en gineer--bulletins or orders signed "Director ot Safety and Personnel/' for example, liavc more auibomv and meaning to the average commercial vehicle operator than one signed merely "Safety Department/* or "Safety Engineer'' In many large fleets the safety engineer* job is comparatively new; the 'perattffrg and maintenance departments, in pamcmlar may look upon his as an evil, and not a very necessary one at that. Manage ment should encourage cooperation between the `thcr departments ami the Air1} dc (tftrtmrur. A Good Investment It l*a* often been said tliat to make money you m*t *pcwd money. If management is u> get a return from iu safety expenditures there rau't be an honest investment. To have a competent engineer in charge and then tie bis hands by refusing to provide for him attd his department in the budget m a sensible manner is to throw the whole safety merhajwsm into reverse gear. Providing adequate clerical and secretarial assistance will give the safety executive time to devote hi* ei` forts to major items, and not tic him to n desk over winch will pass a mass of demit tluLt could just as well be handled bv an effi cient clerk. An adequate budget will enable the engineer to provide rewards ami incen tives for safe driving; to invest m. and ex periment with, new safety device*; Jo pub lish a safety hou*c organ; investigate com pletely all accidents; to check the back' ground of all new personnel thoroughly (the last being an Increasingly important factot with general conditions as they arc today). The Responsibility for Safety By EBER S. LUSK Director, Safety and Personnel. Peter Ecfcricb & Sons. Inc., Kalamazoo, Mich. Wc often have heard the old alibi "my business is different ** So are the leave* of the tree?, and the experts tell us that there are no two fcafferpriuc patterns alike. But the general principle* at all legitimate busi nesses are similar---despite the differences of approach which we may employ in thr selection and training of individuals. In the main, all businesses have similar basic safety problems and, in our own company's business* of manufacturing and distributing a million pounds of sausage products a month we have found **the responsibility for safety" is ac cepted as the personal responsibility of each individual worker, no matter what his job. Each worker ii =:ver mindful of that fact! From the very moment a man is inter viewed for a job be learns tc> make safety* his personal tesponsibility. Before he goes to the company physician, before he is given his first job assignment, lie fore lie is al lowed io be fitted for his safety shoes and other carets equipment, before he has com pleted his probationary or eriil period! of employment hi* mcnul attitude toward hi*job enables him to know that his success ami his happine*$ are assured only as tone as he observes the common sense tight* ami privileges of safe workers in his department Remembering that xnanogement'* job is one of administrative education; we have found the aic worker is rewarded and *ceives living benefits in true ratio to the interest he derives from his individual in vestment >n safety principles. When an in jury' occur* to one of or plant workers ot when one oi our drivers is involved in a traffic incident, the individual employer knows that it i- his personal responsibility to report the facts: freely, honestly and fin parliall). He knows that management will get the facts. Consequently, he voluntarily sets in motion the fact-finding machinery 110 29ih National Safety Congress Management's Interest and Responsibility for Safety By DON M. GOODWIJXIK Safety Engineer, The Willett Company, Chicago Management must want safety just as it wants sales; it must have a safely engineer or a person definitely responsive for safety m the same manner and for the same pur pose as it has a sales manager. The old idea of sticking up a few safety posters, having one safety meeting a year in the garage before starting the day's work and leaving the rest up to the insurance carrier is out of perintendent. Tn that case, management qw.: see that this individual gets some tools %*? tlie experienced safety engineer He should attend such meetings as these; the compam should join an established safety organiza tion in order to keep abreast of the latent developments. He should cooperate close!} with the safety engineering department o-i hU company's insurance carrier. date. There must be constant follow-up by management of the safety program. This follotiv-np, in my opinion, consists of the Some may ask how large should a ficer be to justify a full time engineer,. That i* always a question, based on mam* variable-, but 1 should Say 50 units Or more. interest and desire by the management for A fu** time engineer with complete au safety and the definite delegation of the thority' is management's first responsibility _ responsibility for safety to one man. At this point the job is well suited, bus Firs?, management must place the respon sibility for safety with a competent and experienced safety engineer with background and training. He should be selected by the same baric principles which govern the hir ing of any executive. Too often, and usually following a series of accidents, a temporary hubbub takes place, and the result is that someone h, 5ired without the necessary hardly finished. It is most important that the roaitagerocm should demonstrate "constant exccmhe in terest." If we are having a safety meeting or party as we call them, l exert every effort to have the head of our comp&m present. This interest, expressed by the gn ing up of personal time, lends prestige and momentum to any safety progrant- qualifications- at a nominal salary. Or. in the smaller organizations, the job may be Arulyxing Results given to a minor foreman or clerk. He may lack die proper background, plus the im portant fact that, by the very nature oi his previous position, he docs not command the respect of department heads and general personnel This is an evasion of responsi bility on the part of tlie management. ft any safety program result.- -iwwiW fnr carefully analysed and presented to the management, which, in turn has the rcspmv sifewlity of ixumUcl} scrutinizing the work that has been done and making suggestion* Do not create a department and then forget about it; there are dollars m safety a< well Get the Right Man a? in sale;. Many large dect owner* believe in the Management should hue the proper man to do the job; pay him well; and give him an appropriation for expenses, and watch for result*. Unless there are tome unusual technical factors present, I believe in bring ing in a roan from the outside t realize that in small organizations this cannot be done Tn that case, it may be possible to justify a full time engineer by assigning correlated activities to him such as person nel, public relation*, and the handling of small claims and complaints As a final alternative, management may assign the job to an executive, such as the operating su principle of '"paying for their mi-take< ** We feel quite strongly about this. Faulty equipment, marotenance and pewomtcl arc .-trong accident producing factors. When an\ of these factors produce- an accident it costs manageroent money. Management will show its desire to accept safety respon sibility by actually paying through its own channel*, with its own draft and clearing over its own signal*, rrs. While I am not advocating self-insurance as a general rule, it seems that, by the retention of a small amount of self-insurance, a much greater interest in safety can be created tn man- Commercial Vehicle Section 111 agement, and in turn through the whole or ganization. If it costs the company 5100 by its own cheek to settle a claim caused by brake failure every body gets stirred up about it. Considering the fact that there is no read difference who pays the small claim it has always been arousing to roe to note the difference between the way people react to a claim covered by Insurance and one self insured. Management should place the safety en gineer in the status of a department head, giving him complete authority over all mat ters pertaining to safety, and back that authority tip completely. It is oiten said that titles mean nothing, but I bdttvc they are a psychological aid to the safety en gineer--bti1letins or orders signed "Director of Safety and Personnel," for example, have more authority and meaning to the average commercial vehicle operator than one signed merely "Safety Department," or "Safety Engineer." lev many large fleets the safety engineer's job is comparatively new ; the operating and maintenance departments, in particular may look upon his as an evil, and not a very necessary oee at that. Manage ment should encourage cooperation between the other departments and the safety de triment. A Good Investment It ha* often been said that to make money you must spend monev If management is to get a return from its safety expenditures there mut be an honest investment. To have a competent engineer in charge and then tie his hands by refusing to provide for hroi and his department in the budget in a sensible manner is to throw the whole safety mecha nism rolo reverse gear. Providing adequate clerical and secretarial assistance will give the safety executive time to devote has ef forts to major item1;, and not tie hnn to a desk over which will pass a mats rt detail that could just a* well be handled by an effi cient clerk. An adequate budget will enable the engineer to provide rewards and incen tives for aie driving; to invest in. and ex periment with, new safety device*: to pub lish a safety house organ; investigate com pletely all accident, to check the back ground of all new personnel thoroughly (the last being an increasingly important factor w ith general condtikms a* they arc today). The Responsibility for Safety By KBER S. LUSK Director. Safety mid Personnel, Peter Eelcrtch Sons, Inc., Kalamazoo, &fch. We often have heard the e>M ahb* "my business is different." So are the leaves of the tree>. and the experts tc!9 us that there are no two fingerprint patterns alike. Bat the general principle* of all legitimate busi nesses are similar--despite the differences of approach which we may employ in ibe selectkm and training of individuals. In the main. aU businesses have similar basic siety problems and in our own company's business of manufacturing and distributing a million pound* ot sausage products a month we have found "the responsibility for safety" is ac cepted as the personal responsibility of each individual worker, no matter what his job Each worker is ever mindful of that fact I From the very moment a man is inter viewed for a job he learns to make safety his personal responsibility. Before he goes to the company physician, before he is given his first job assignment, before he is al lowed to be fitted for h$ safety shoes and other 'tafety equipment, before he lias com pleted his probationary or trial period of employment Ins mental attitude toward hi< job enables him to know that hi* success ami tws happiness are assured only as long as he observes the common sense right* ami privileges of safe workers in Mr department. Remembering that management's job i* one of adrnhmtrative education; we have found the sate worker is rewarded and re ceives living benefits in true ratio to the interest he derives from hts individual in vestment in safety principles. When an in jury occur* to one of our plant workers or when one of our drivers is imolvcd in a traffic incident, the individual employee knows that it i- his personal responsibility to report the facts - freely, honestly and im partially, He knows that management will get the fact* Consequently, he ioiuntari;v- sct*> in motion the fact-finding machinery U2 19,h Attliomif Safety Congress first to *.vc hunselt the need v remember imr warmed-over fact*. And we- hair round that an up-to-date personnel record, simplified so that only the essentially relevant tacts are available, is a big help m removing the cause of unsafe practices. Without tire human factor in accidents we feel tlwt there would be little need for personnel records as a part of our safety program. The nature of the records is determined by the kind of the job in which the worker U engaged. For ex ample, through the cooperation of our auto maintenance and sale? department workers wc obtain individual truck reports. These report forms are padded n duplicate and carried in a metal clip raride each cab. Each report is made out by our driver and is checked for ''grief or irregularities by a garage mechanic and any troubles noted are corrected before the report t* seat in. Main tenance costs, daily mileage and corrected troubles arc tabulated for acconming and other purposes. Vehicle accident report forms and not-at-fault wHncw cards are carried in each cab ready for u. Here again the tndmdciaJ driver is held strictly accountable for reporting details on every traffic incident whether it be a dented fender of "unknown*' origin or an accident of a serious nature- And each incident, whether an accident or not. is reviewed within 24 hours by the branch manager in charge be fore die report is signed and delivered to the personnel-safety department. Monthly safety meetings m each plane and branch, safety bulletins, inter-plant and inter-fleet safety contests and company-wide participation in local and national safety programs alt serve (0 stimulate and maintain that renewal of individual interest which we regard so necessary in our plant and licet safety programs, month after moolis- It cems that otir worker?, our foremen, our branch managers, oui department heads and our company officials have the idea that wlwn one man tells another what to do, the lime of both is taken up with a job which one man should handle. And that is one more reason for ray belief that tle indi vidual who has initiative and has been se lected and i? acquiring experience tor to morrow's fob is the one upon whom wc should show an increasing confidence. We should permit him to share with us the results of has safe working habits so ea<ch in turn may enjoy the savings which such cooperation most certainly assures. If we conclude with the assertion that u is the mdavidtial on the job, the mdividuaJ behind the wheel, or the iadivttfacaJ wbo poshes the button in any fuoctiocml capacity ts one upon whom "respoosiblKty for safety'* should be imposed, isn't rt equally fair to conclude that there should be safety "compcnsabflity" shared by each individual who keeps his personnel-safety record on the profit side of the daily ledger? And here is how we have that worked out: A study of our records up to about two years ago, prompted us to go self-insured on our workmen's compensation. Our net sav ings daring the fir.t rear was 56 per cent of the premium j ' ii the previous year. Up to Cite end of August, 1940. our loss ex perience was 12.6 per cent in actual to ex pected. Individual worker responsibility for safety has done that for us with an approx imate havings of $5,000 a year in insurance. In fleet safety during the year ending June, 1959, our records showed an aeddem rate of 254 tn nearly two and one quarter million miles. In the year ending Juste, 1940, in over two and one quarter million miles our vehicle accident rate was 1.43 or a re duction of nearly SO per cent under the previous year. And we credit the individual driver with the responsibility for this safety achievement. Accident Reports and Analysis By H. V. SCHEFFER Director of Safety, Auto-Owners Insurance Co., Lansing, Mich, While it is important to control the individual driver, if accidents are to be pic- vented, it is even more important to control the drivers of commercial fleets. Such con- trol is possible only if adequate records arc maintained. Fleet accident records arc not adequate unless they arc accurate and comprehensive. Commercial Vehicle Section 113 They xmm show dearly the unsafe acts of the company's drivers and cooditkm of the vehicles, and suggest bow the same may be corrected. They must also provide a basis for intelligent handling of the legal consequences of accidents. H wc are to have record* of accidents whkh will be of value, we must have com plete reports. Accident reports always raise tl*c question "Should all accidents be re ported?*' Regardless of the size or serious ness of the accident it should be reported and given every* attention at the scene. The reason for this xs that far too many minor accidents eventually turn out to be serious, especially if an ambulance chasing attorney gets bold of them, Tlfis however, may be largely prevented by obtaining adequate information at the scene. Even if it does not prevent the cue from reaching an attorney, it will in any event produce the type of information necessary to legal defense. It has been our experience that when complete and accurate accident information is obtained, many cases never go to trial nor are even pressed for xltlcmoit In order to obtain the information winch will be most beneficial and at the same time may be obtained to an easy and quick manner, we should supply the driver with a condensed report form- Usually the only time available for the securing of mforma lion is before the police arrive. The. National Safety Cou&vdrs form Vehicle No. 2 is a good example. Accident Information Even when furnished with report cards the driver should be instructed in their use and also lo recognize certain phases of an accident winch are of vital importance. Therefore, after any injured have been taken care of. and the vehicles protected from icirtlver damage, he should obtain the name and address of the other driver, and the license number cf the vehicle, because the driver of the other vehicle may not own it. He should obtain the named and addresses *.u anv passengers, then those wbo might be injured or deceased, and if it is possible, the place to which they were removed. The names and addresses of any persons who might have rendered first aid, for they might later be of great value as a witness. Tlten the names and addresses of any other witnesses. H no one saw the accident, then the names and addresses of those who ar rived first It also is very important to give special attention to accidents involving minors. If they are seven or younger, they are held free of contributory negligence, which places the responsibility for the accident directly upon the driver. The driver should lose no lime m report' rag accidents involving serious property damage, personal injury or death. This should be done by phone or telegraph. A few hoars lost might make a considerable difference in the outcome or the loss. An accident involving an infant child should always be probated. If you are not self* insured, you should make certain that your insurance carrier ha* settled the loss m this manner. Otherwise, you may find yourself with a serious taw suit on your lands, whkh m the case of a one year old child may come at any time within a period of from 21 to 23 years later, depending upon the laws of the state. It is also very Important to report the damage done to the other vehicle or object. Jf there is an insoranee company involved obtain its name and address, for this might be most helpful to you later to settling the loss. A general description of the accident should be given, and if carefully phrased questions are used on the accident report card, much assistance can be given the driver in this regard. Measurements should be taken where ever possible, bot if It is not, then carefully stepped off distances will be sufficient. The driver should be sure to todtcatc which direction is north and give any landmarks which might be used for identifkatkm purposes. Sometimes a sketch proves, helpful. We do not recommend having the driver take lengthy statements; names, addresses and license numbers of the persons and vehicles involved are of more importance, and then too, trained In vestigators are better equipped to take state ments. When Police Arrive After the police arrive, the driver should Cooperate with them in every way. He shooId also obtain the officer's name, badge number, aod the station from which He op erates, so tint a check-up might be made later on his report. 114 29(h National Safety Congress To facilitate the checking of the police report, duplicate police forms should be used Most police posts or stations will not Jet \u ee the accident reports but will read them 10 >ou. Therefore unless you have a form which is an approximate dupli cate ut theirs you will have a great deal of trouble dKicking it. I torn tlvci'C two reports, the drivers and ike officers, a final analysis report of the accident iren he compiled, and for this purpose we recommend the use of the Na tional $afet> Council`s form vehicle No,. 1. The compiling of thi report should be done with further questioning of the driver by' an official of the company and every* point -hctald Ik etimklercd, for it is at this time that definne responsibility for the accident may Ik? determined I? a jMn*! jub ha.- been done in report ing the accident and *n maintaining an ac* curate accident file, then concrete evidence *y x* tlwr cau-e *f the acckknt will be forlhffimnniR- You may be reasonably assured t*s ih> if ihe form.** described in the Na*w*u,l Safety Council's Safe Practice pam phlet I>-4 arc ta-cd a- recommended by the Ut niv Icavt. out: word of caution: Re gardlc-- m wlai forms arc used, drivers mu-t 1k thoroughly instructed as to their u*< Itiorc the accident occurs or they will 1-e .f little use to them in an emergency. A example." or these irtMrnctiom may f< sound mi the National Safety* Council's Meet Safety Memo Xo JR. Reposts alone will not stop accidents! They must be analyzed and a really ade quate analysis requires both a routine pro cedure and special study. Time will not permit a detailed discussion of the accident analysis, so I will make only a few brief suggestions. Keep individual drivers' records, am! for this purpose, I recommend the driver*. rec ord card shown in tlic Safe Practice Pam phlet D L If this does not meet icur needs in every detail, it at lca*r should 1jc used as a pattern. This type of record card wilt afford you an opportunity to nudy the entire experience of each drive*. But to do so efficiently a record fife should be set-up. Two common methods for filing accident records are shown in the National Safety- Council's Fleet Safety Memo N<x II. The*e records plus the use of slw Song or short form analysis or tally sheets de scribed in pamphlet D4 will provide you with the knowledge of the action* and circtaims&rtccs of the accident which form* the ground work for accident prevention. The information derived from the form1 Have jut mentioned will be camprcrheti <i\c and consists of the type, severity, ami location t the accident The condtriotiumlcr which it occurred, such as the weather* roadwav. Hour of the day, day of the week, etc. Condition* and action? of the driver* and pedestrians. They will also pro* vide information as to who was involved and establish responsibility for the accident thus affording an opportunity of preventing an accident's recurrence. Selection of Personnel By HAROLD J. JONES Director of Safety and Personnel, Automobile Shippers. Inc., Detroit Recently I noticed a motor company ad vertisement headed by these words: "Get the Low Down on Dodge Job* Rated Truck." In the body of the ad. it explained that "fob-Rated" meant a truck that fits the job. If the employment manager knows the type of job to be filled and knows definitely what information he wants from the appli cant and how to get it, he thereby can get the "Dow-Down'* on the applicant and can efficiently `'Job-Rate** hun Of course, where all the employing is done at one central office, an employ merit manager can generally handle the situation But m many fleet operations, drivers are employed at various terminals by* the local supervisor. In that case, the employment manager does not oime into personal con tact with the applicant before he is hired He must, therefore, depend largely on bow* well the local supervisor handles ibe selec tion, Most of our difficulties arise when supervisors who are not trained in employ ment procedures attempt to select driver Commercial LY/nV/i* St'etwH 115 personnel. This. U especially true when there is an immediate need for drivers during a peak period and they are tempted to hire without giving much attention to the appli cant's qualifications. In our organization, we supplied our supervisors with a definite procedure. Each man hired is placed oo 30 days' probation under the supervision of an instructordriver until he qualifies. Failure to qualify in tills- period results m dismissal In our instructions to the supervisors, we stressed, among other things, two subjects of inquiry by which he can "job-rate** the applicant: good character and competency. Have you ever questioned men m a super visory capacity for an explanation of char acter? ! found they had a general idea of the subject, but in defining character, they were not in agreement. In other words, lhere was a coofiicdon of thought in the evaluation of character. Wc have often heard the expression. "The man lacks char acter." What we really mean is, "The man Has lew fixed moral or ethical standards." Therefore, character becomes a major factor in your decision to employ, because the gseedy. dishonest, overbearing, selfish, unps incipled man who cares naught for his friends and fetlowmen must be weeded out. I bclieic it is so important that I divided character into two component farts: dependabilitv and responsibility. We all agree that wc must employ de pendable drivers. We all agree that the men we employ most be relied upon to drive our vehicles without direct juperwrioH over many miles of highways--one who can be trusted and w-tU take pride in his equipment and drive safely day m and day out. Systematic Supervision Oar driver* must be reliable and trust worthy, Therefore, to be assured of de pendable drivers, you must provide the terminal supervisors with a procedure that will enable them to obtain the facts that will ultimately prove the dependability of the applicant. It is. a foregone conclusion that depend ability cannot be jedged wboBy upon an in terview. Honesty is an attribute of depend ability. Wc, therefore, might judge depend ability through honesty. So, it is important that we instruct our supervisors to dig deeply into the applicant's past. Know for certain that he is reliable and tiutworthy in all his actions. Home Life Influences In dealing with responsibility, practically the same procedure should be followed. Bj all means insist that the supervisor dtcck into the home factors of the applicant. 1 am a firm believer in the knowledge that in the home lies the secret to a man's respon sibility. Therefore, be absolutely certain that he is devoted to his wife and children, or whether he is a ditsefer, moving aboui from one place to another to avoid paying rent and other just debts, to the embarrass ment of his family. Does he drink and squander money* that s-ltould be used for the support of his family? Has he the habit of borrowing and never paying back? Is Ht the sporting type--lady-killer, card-playing parts- boy In m> opinion, character is the dominating factor hi the employment of a man Gi\c me a man who has high principle-, and I can teach him what t$ necessary and make him a lojal and efficient employee Atict disposing with the character quu* lion, however, we must of course be certain that we employ competent drivers Com petence should He divided into four com ponent parts: ability, experience, suitahlene^ and firneSK On ability, we should set up a procedure (o follow in determining the skill of a driver. Xcm, we should have definite require ments as to experience; Ikw the applicant will perform under actual driving lots, his knowledge of safe driving roles and of I.C.C Satclv Regulations. Minimum and maximum age limits should be determined as well as the weight and height required by your particular opera tion Further, the applicant shouhl be in telligent and mentally alert. Then, the matter of fitness and whv a physical examination is necessary* should be stressed, fn our own case, we arranged with doctors to examine each likely appli cant on physical standards patterned along the lines prescribed by the Interstate Com merce Commission, 116 29th National Safety Congress Training of Personnel By FRED L. STRUGGLKS Assistant Usaaxer, Department of Safety and PcnoaDel. Qreyboond Management CoM Cleveland, O. The primary cause of accidents Involving commercial vehicle drivers is not the lack of plain driving ability but the failure to recognize possible hazards until too late, or else the unwillingness to keep under control to avoid an accident regardless of condi tions. Therefore, the important thing in training drivers so as to reduce accidents x% to sell the man the idea that safety pays and to instill in him the will to drive safely re gardless of what other drivers might da The question of a man's ability can be determined without much difficulty. Gener ally-, a review and verification of previous employment plus a road test will show whether he has tins ability or is capable of acquiring it with a little practice and coach ing. But instilling the will to drive safely requires time and patience. Therefore, it is my contention that the actual training of new drivers should not be dtj-po-sed of by means of a short road test or a trip or two with a regular driver. Instead, an impressive training program, in keeping with the needs of the individual company, should be formulated to make the applicant safety minded. The training should be devised *o that it will be difficult for <im applicant regardless of previous ex perience io be approved unless he applies him*eli. When employment conditions per mit, the irairiuig should require some sacri fice on the part of the applicant. The time to do this selling job is before and not after the man is employed, as prior to employment, he is to a more re ceptive frame oi mind. Satisfactory comple tion of the training course should be. made a requisite of employment. The Training School be used in the selection of instructors from your driving personnel. The actual supervised driving practice shook! include actual slopping distance test"; on the highway with loaded vehicles. The driver should be required to pace off the distance. Tests should be made at different rates of speed to iUostrate bow the stopping distance increases out of proportion to the increase in speed. Considerable can be accomplished towards making a driver safety minded by talks and illustrated lectures on defensive driving. The stopping distance tests should be sup plemented with talks designed to drive home the precautions necessary and what it means to be under control at hazardous points so as to be is a posstkm to avoid potential accidents. These talks should also be de signed to create pride in the driver's safety record. Courtesy to other motorist* should be encouraged. Some mechanical instruction should be included in the driver's training especially as to those units vital to the safe operation of the vehicle. This is especially important on inter-city operation so that the driver is capable of making minor emergency repairs enroutc. Jt is also felt that the driving efficiency of a man in increased if he has a working knowledge of the units of hi> vehicle. Interstate Commerce Commission and state regulations as well as the company safety rules should be thoroughly covered. A short written examination covering the major points of the training course at the completion of the preliminary training be fore employment is desirable to assure proper attention. It will have a good psycho logical effect. The establishment of a regular training svIkjm! is recommended when practical. Re gardless oi whether or not it is practical to operate a school, is appears desirable to have the same regular drivers handle the driving instruction for new* men. This assures uni formity' of instruction and enables instruc tors to develop their technique. Care must Safety Re-Training Safety meetings are one of the most widely used means of follow-up on retrain ing Such meetings must be varied and made interesting through the use of outside speeches, presentation of safety awards, dis cussion of operating problems of the com- Cotmnercial Vehicle Section 117 pany affecting the driver by representatives of other departments, analysis of accidents taken from the company claim files and safety movies. Safety quizzes as well as other matters affecting the drivers' duties with cash award* to the winner are instruc tive and generally well received. The performance record of individual driver* should be constantly watched and conferences held with individuals showing a tendency to slip. Bonuses, Awards and Penalties By C. G. BEMDKR Safety Director, The Kellogg Company, Battle Creek, Mich. \Vticn vi e stody well regulated 2nd organ ized safety efforts tn industry* 'Kc arc im pressed with the soundness of the underlying principles of the program If industry has established certain fandaaicataU of safety, why can't we in motor vehicle activities profit by that experience? Accordingly, let us consider whether, by the use of bonuses, penalties and awards, the respect of the employee can be arrested, bos good will gained, his cooperation encouraged, and whetfver the program will have lasting and iar`reaching beneficial results. Awards It in human nature for individuals to like recognition. If this is sincere, the employer will surely gain ibe respect of the employee, encourage cooperation, create the proper at titude towards safety and create employee good will. However. 1 believe that a sincere award need net necessarily tie of appreciable money value. There are many plans which can be promoted under these qualifications, as for example: 1. A commewlatory letter over executive signature. 2. Taking a group picture and distribut ing copies to those recognized. 3 Holding a smoker at the employ et's expense. A. Holding a dinner furnished by the em ployer. >. Publicity in your load ei company newspaper. It, Many others-, including the presenting of certificates, medals, pins, rings, etc. Penalties Tlie usual interpretation of a penalty sys tem is that it is comparable to a system of monetary* fines. This means the fines would be levied for: Certain types of acci dent*: accidents for which the employee h responsible; a series 01 accident*, and other offenses In my opinion, such a system has no place m promoting a safety program. Surely it would not be conducive to aiding a desire to work or drive safely. It would not en courage cooperation, it would not create good will and it would not gain employee respect. On the other hand, it would create a lack of confidence, it would tempt the filing of false reports and facts, it would encourage the temptation to file no report, especially in minor cases; it would more surely destroy morale and create ill will. It would put (lie employee in the light of being forced or driven to Ho a job that he should accept willingly,. One personnel director summed up the effect of a penalty system very precisely when he said: "The best valesenan for his competitor is that sale-man the next day after having re ceived a monetary penalty for being in* voiced in an automobile accident." Penalty systems shatter all the fine tradi tion* that the average imkiury has ;-.night to establish through Its safety effort- Accordingly, 1 maintain that a penalty plan doo not deserve even trivial consideration in safety, unless, of course, a company has sorb a general penalty plan that it fines a per-u for every type of job failure, such as failure to treat customers-with couiiesy, failure to maintain exact and reasonable time <chcduks, failure to land an order, failure 10 obsene company rules regarding genera! policies and all the other failures with which we are confronted year aiter year. Penalties. Itowever, should not be con fused with discipline. Disciplinary action must always remain a possibility, both m *afctv and all other activities or duties 118 29th National Safety Congress Bonuses In the tame manner that it is peer policy to penalize a person for accidents, so also U it inadvisable to pay bonuses for not having accidents. We all recognize safety as an integral part of any man's duty, and a* *uch. should not be pointed out as some thing for which an extra bonus is necessary. Paying a bonus makes safety superficial li Ix/nuses are superficial, there can be 'Etie hope that they will fill the bill True, the effect would be different than under a penalty system, hot would not constitute a -ohil footing unless accompanied by many nhei -tfong safely features. W c must, not. however, overlook the fact dial if a company has a general bonus plan, ivhirh involves production, quality, etc., then safety should have a bearing on the ob tainable bonus. One other exception, ii the company has a penalty plan, it should necessarily be imrvratlve that it aho luue a bonus or re ward plan. The first, without the second would make a very unbalanced situation and would create additional embarrassing cir cumstances It seems logical that if a man is placed in a position to lose money because of an accident, by the same token he should have the opportunity to benefit because of a perfect record. In the final analysis the adoption of a bonus and penalty plan is a temptation to follow' che line of least resistance in showing rapid improvement and to forget the essen tials that must be drilled into an employee if successful safety efforts are to be forth coming. A good program is designed to be successful and to show improvement over a period oi years, rather than to accomplish immediate but premature results. Accordingly, f suggest that we in our vehicle program follow the experience of in dustry and try* to eliminate all frills from our program, especially those that are super ficial and those that destroy morale, good will and personal pride. WEDNESDAY AETERXOOX SESSION October 9. WO Rules and Tools for the Fleet Safety Engineer *'"r: uhHtf H. S i>3E, AsriMJUit Superintendent. Evening Star Xcw-papcr Co, Washing- r- i. r> j ,, Committee to Make Inspections and Determine Responsibility By J. P. HOLTKAMP Fidelity and Casualty Company of New York, Chicago '.\b.n ih< operations are extensive with t.m-iu- terminals and shop-*, a committee to rr-pvrt the physical condition of buildings, k- and shop equipment ha* !><cn found s u-eiul tool to the safety engineer.'This `.Mimnikr i- similar to the plant safety .Mmtriuce Its memliers are stationed at the -raraae or terminal It meet? regularly to renew the personal injury* accidents which occurred at that terminal One mem ber regularly makes an inspection of the deck- and equipment and submits rccommeiuUium* to correct unsafe conditions These recommendation* are reviewed by the iMimmttct and sulMniitcii to the safely di rector and management for their action. The committee should consist of three or four members, rotated *-o tliat all employee** Siave the opportunity to benefit from the -safety discussions. The chairman should be ilie local terminal or garage managci and tlw membership should coo*i~i of dock hands and mechanics Committees on Responsibility Some of you may inquire why oru- man cannot determine whether the driver is re sponsible for the accnlcni- This works out all right where one man is- wholly respan *ihle for all the varied functions of a fleet Commercial lehule Section 119 operation. Elects of this type will neces sarily* be -mall, say up to 25 pieces of equip ment, with little turn over of drivers anti clo>e c*ntac! between the operator and driv er-. For the large fleet, however, we find that rv-pcxwlitUts for maintenance, dispatching, hiring and training of drivers, safety and general `operating practices are divided. One* man camn-t keep up the desired contact with the Inwr*. and it is my experience that a committee tc< determine accident responsibil ity' ha* an important place in tlie safety pro gram, A committee to determine accident re`POO-iMlm. when functioning properly, will develop the following information, valuable to the fleet safety engineer; 1. Determine tlx; responsibility tor each which: accident, after a thorough anaisris of it ? I'rtfdj? an opportunity to do effective edu-catMtnal work with the driven- who arc having tire accidents. 3 Pr-\ide accident prevention material for aYt> meetings. 4. Develop wiforrmtiom that might Ihz helpful In the settlement of claims. Cftmwmitcc* of this type arc commonly called: Tnal Board Meetings, Safety Board Hearings. Courts of Inquiry arid Kangaroo Court*-. With the Kangaroo Court the driver ex plain* hi* accident before a jury c.i drivers, one driver acting as proseeutiog attorney, another a* defense attorney. The judge ri generally the safety director or superintend ent of the fleer. After hearing the case the jury *taic5 whetlter the accident will he charged to the driver. Some of these meet ing* are held before all the drivers so that they will all benefit from the discussion Another t>pc of committee is the Trial Board or Safety Board Hearing- It is my experience that this type of committed is preferable, localise it will be treated with more re-pcet than a committee composed of driser* ouH, and its membership is reduced to a minimum. This committee should con>i>t of ihe following men: 1. A representative of tlw maintenance department--preferably the head 2 The superintendent of the fleet. 3 Tlw safety director who acts as Chair-, man and conducts the meeting. 4. Two or more driver-.., 5. A representative from the insurance carrier. I do not believe that it is necessary to have more drivers than representatives of the other department*. After all. the main thing is to sec that the driver gels a square deal when his accident is analyzed, k'nle*the committee has a reputation among the drivers for giving them a square deal, it will defeat its own purpose and will lower driver morale. This committee includes a repre sentative of each department so that, if an> question regarding equipment or mamic nance conics up, there is a representative of that department to answer it The commit tee should decide whether the accident ichargeablc to the driver. It should not de termine the penalty. That should be derided by I he manager of the fleet after receiving the committee's report If the accident was not charged to the driver, and if the loss was reduced consid erably through some action of hix he should be commended. Thu. should also lie brought to the attention of the management and to ihe oihrr drivers by a notice on the luillctin hoard or an item m the company paper Holding Meetings In holding these meetings it is important that the driver be made at ca*c when he enters the room- The driver should be in troduced to everyone in the room that he docs not know*.. The chairman should havv the driver's accident report in front of him and also the driver's previous accident and employment rccqjrd. The driver should he asked to explain his accident in detail. Toy automobiles and a layout of highway and intersections is sometimes provided. After the driver has explained lire accident, the committee, in turn, should ask the driver questions on points not clear to tliem, It in important that this committee have the right attitude. Members should not ride him or be too critical- The driver should be akcd whether in his opinion he was at fault. Safe driving practices which could have avoided the accident should be discussed. When He leaves the meeting he riiould have a clear impression of what to ilo if lie ever get* into the same accident situation again. Some committees classify accidents three w ay :>: I. The driver h fully responsible. 120 29th National Safety Congress 2. He is partly responsible. 3. He could do nothing to prevent the accident. There will be a. tendency to place the greater portion c the accidents in the sec ond class, that is, the driver is partly re sponsible. It has been my experience that it is better to make a clean cut decision and either charge the accident to the driver, or absolve him of any responsibility. When a driver knows he will be charged with an accident even though he is partly respon sible, it will tend to make him a safer driver. The practice of telling the driver that he will not be charged with Ins particular acci dent, providing he finishes the year, to get a safety award, is not fair to the other driver*. General rules on what constitute* a chargeable accident should be set up at the inception of the plan and before the commi: e starts to function. The frequency of meetings depends upon the size of the fleet and the accident fre quency, They should not be held too far apart. For a large fleet of over a hundred vehicles, they should be held weekly. For an average fleet of 50 vehicles; twice a month. Conditions of each fleet are differ ent. There is also the problem in the long haul fleet, as to bow to get the driver at the committee meeting. This is a problem for the safety engineer. With local cartage fleets the problem is much simpler because all men are in the terminals every evening With local fleets it has been found practicable to hold these meetings sn hour or so before quitting time, an extra driver taking over the work of the 'defendant.*' Or the meeting is held after the drivers are through. Best results will be obtained if these meeting* are held on company tune. Contests By HARK FERRARI Supervising Fleet Engineer. Continental Casualty Co., Chicago Thefe are various types of safety eonthe two most prominent ones being intra-fleet and inter-fleet Contests. Inter fleet contests, as we all know, are generally conducted by safety councils, National and slate, and in many cases by chambers of commerce. An intra fleet contest is conducted between drivers of the same organization. Thi?re are five cardinal principles of a successful contests 1. Management and supervision 2 Driver interest 3 Efficient committees 4. Suitable awards or trophies 5. Successful conclusion . Starting with the first principle of man agement and supervision, it must be ac cepted that unless the management can be sold on tire contest and takes an active part, tire contest should not be started. If the management is not interested we cannot expect the drivers, committee or anyone else to pay much attention to it Manage ment should systematically plan the con test, deciding definitely on bow long it is to run. who shall determine the ehargeabtlity of accidents, and what shall constitute a chargeable accident All these points should be outlined to the drivers at a special meet ing called by the management. Meetings should be called from time to time during the year. Management should be present and re-emphasize the importance of this contest, complimenting the men and en couraging the men who have had accidents to fall in line quickly so that the compe tition wU not lag. Maintaining Interest Charts showing the standings of the teams engaged in the contest should be posted in a suitable place in the garage where all the contestants can sec them Slogans encouraging accident prevention should be assembled around it The driver's interest am be easily ob tained if we sell him on an idea that he is individually responsible for the standing of his team. To build up this interest, drivers should be allowed to elect the team captains and should be encouraged to dloose a man who has the respect of the other members 'of the driving personnel; a roan who is a go-gelter and will take an active part at Commercial Vehicle Section 121 the saten meetings. Drivers' interest can be further developed by management if the men are called in and told (hat their efforts are appreciated. It may take a little time to get full co operation from the drivers, but if we keep working it will not be long before the driv ers will l>c greatly enthused, our Safety Meeting* will be more active and there will be a ratting of the morale to a higher degree. Fair-Minded Committee The committee to decide on the chargeability of accidents should never be one sided. The driver should feel the contest is carried on to make him a better driver, not to put Him on live spot. The committee -bould comprise two drivers and ome execu tive. giving the drivers the balance of power in the voting. An appeal should be made to their sportsmanship to decide the case strictly on its merit and according to the rules set down by management at the begin ning of the* contest Many contests tag mainly because no suit able award or trophy has been set up It is nor sufficient to state that if the drivers win the contest for their team an award will be given. Wc moM sate what type of award it will be and the best way to decide that is to find out in what our men are interested. Some companies have been ktuwn lo gi\e the drivers of the winning team a week's vacation with pay; other companies have taken Uir men to banquets ami Own to a ball game, while some have xrt up a cash award to be divided among tbe win ning team. But the main thing to remember is, that tite type of award must be announced at the beginning. The Conclusion The content cannot be called a success unless the conclusion is better than the be ginning. Many companies, when reaching the conclusion, simply elate themselves over the fact that their accident experience and have been reduced,. Then they hold an ordi nary safety meeting to award the winning drivers This is the lime that we dwwilrf not nuss the boat. This is the time that we can do the most to encourage driver* to drive carefully tn the future in order to avoid accidents. This is the time we must let all men know that we did appreciate their efforts in the past year bv giving I Item a banquet separate from die one la tlic winning team, inviting both the winner* and the k*t. ami again thanking the winners for their efforts and encouraging the losers to n rat next year Newspaper publicity <boww*g what our drivers have done ti u1m> 3 good method of complimenting the mm and keeping up morale. First Aid, Road Trailing- and Checking By C. H. BUSS Safety Engineer, Brady Transfer & Storage Co., Fort Dodge, la. The trucking industry, by its very nature, is not composed of one or more plants, as is the case in other industries. Normally the employees in the trucking industry arc isolated. True, at a few of the larger ter minals where there is somewhat of a con centration, such as a sizable dock crew and perhaps the home station for a number of drivers, we have first aid rooms, well equipped. In our experience, we have found it valuable to have several department heads trained in first aid. While it is difficult to get any dock worker or warehouse worker to report for first aid, if they row be induced to report even minor injuries, then it is natural for them to report to their superiors. On all shifts throughout the workday there is one department head ready to make simple dressings and in more serious cases, has authority to order injured worker to company doctor. A plan we hope some day to embrace is having a stenographer who is also trained in nursing It would be fine to have a registered nurse, but the workrolls in even larger motor freight terminals are not large enough to afford such ex pense. In addition, the work is not par- ticulatly hazardous. This tteno wears white, saving several dollars a month on clothes, and it is fairly easy to find a girl wlto will be willing to do part-time first aid work. On the other hand it would be virtually impossible to get a nurse To type letters. 122 29th National Safety Congress Thi nurse -clerk idea is worked out, to my knowledge, during day time only. A* to getting employees in the trucking industrv iq report for first aid treatment, T .-upio>v the> are like men in other Indus trie*. tbe\ think it is stssified to report for hnndaetng of minor cuts and scratches. It i one thing our safety programs do, how ever. to gel men safety-conscious and wc find that truck drivers are more prone to rejHirt for treatment. This is as il sliould be. a* we tram our heaviest guns on tliem in *-ur educational work. i *ut fleet is so fortunate as to have several :nncr Ko\ Scouts as drivers who are ir.uncd in first aid and life saving. My com* pain ha- recently employed some drivers v-b- formerly operated trucks in CCC camp#, and it is mandatory' with Uncle Sam dint the*e men carry American Red Cross Rr'-t Aid Certificates. Members of our -ari-iv ?jalT. and we have a safely super visor every 225 miles, all have safety train ing and can give excellent account of iticnv>elve* in case of emergency. However, these ur**up~ tepreient a minority of our driver WTVC I'min the standpoint ot proficiency as sec b> tbc.-c men, it is hoped to get alt of our driver.- to lake a course in first aid tram* ina and have all units equipped with first aid kit- An increasing number of large lint- are providing extensive Grs.1 aid train* and drivers who qualify in the Advance Coutsc arc provided with a first aid kit and a mobile first aid plate for their unit. Study it a5 the dream of ever}' safety di'n'tor to liave all of his drivers trained in rtr-r. aid. In addition to the Christian and humane value of this, without bring loo commercial. we cannot overlook the adver tising value of emergency-trained truck tlrivi-r- H wwnci, llieic is one phase of first aid that the majority of our truck drivers can rwd do perform. By tie very nature of their jab, traveling up and down the highways day m and day out in all seasons, they sec :nanv accidents and it is sad but true, see i-o many that they are not greatly upset at corning upon the scene of an accident We believe that because our drivers see acci dents so lrequently and can keep their heads clear they are in position to do the m*-t good by their ability to give calm and seiwhlv direction in handling injured per sons. The driver is the man who can suggest to the assembled throng not to crowd the injured person, to give him or her a chance for a breath of air. He will diiect the crowd to remove tire unit from immediate path of danger and thus prevail accident from becoming two accidents where one was one too many. He will counsel bystanders not to move injured persons unnecessarily. He knows that great harm can be done b\ in creasing shock, in the all-too-comraon prac tice of rushing injured persons madly to a hospital. He can counsel persons at the scene of an accident that it i better to bring the doctor to the scene, or wait for an ambulance, than to attempt moving. In fact t would say our policy for driver's help in emergency is like explaining mush rooms. We start mit with where mush rooms can be found, how* the}' are best prepared and eaten, but we start with what not to do with toadstools So our driver training in first aid starts with what not to do in Case of accident, as being the greatest good they can do in case of emergency Thiwe consider very definite first aid training Hoad trailing or observation represents the mam effort of our engineers. Someone high in the insurance field estimated that insurance engineers see a driver one-railliomh of the tirrv he is driving. Some mem ber of our safety staff trails every driver about two miles at least four time* a vear. This is two miles in every 10.000. so I be lieve we have those odds cut down. How ever, we know- it is onlv a fleeting ghmcv. so to speak. It .viands to reason that we nu*t make the most of the very short time we do -ec a driver. Without bring too dogmatic, we Have arrived at certain more or less iron clad rules we follow in observations. Ob servations must be made at all time? ami everywhere- That sounds like a big order, but any less effort will not produce results, and if I am sure of anything in safety. 1 am sute dial observations witl produce re sults. I am sure our accidents decrease in direct propeition with intensity of observa tions. We must see the driver in the middle of the morning when he is thinking about the day's work ahead. Wc must see Him at noon when streets are crowded. We must see him in the middle of die afternoon when he is becoming tired. Wc must see him at suppertime, during the evening, at midnight. Commercial Vehicle Section 123 at 3 am when all is clear, but not clear enough, and at dawn. I impress dawn as that is the time when drivers are more likely to become sleepy. Observations must l*e made on lonely stretches of road miles :Fr*jm anv terminal. They must be made near railway crossings, at the foot of hills, on citv streets and in country towns. Also we make observations as drivers new major terminals. Observations which give you a less clear picture are unfait in the driver and to yott. Incident a tier incident could W given vs Sicre favorable observations arc made on driver* we know bv grapevine arc rcckle Many times we have had driver* thrown into jail for reckless driving who have re p<ated!> liad favorable report* TSii doc?* not speak very well of our observations 1* points a finger and says we are not doing a complete job We believe the ideal observation i* made without the knowledge of the driver. H ihat possible. Remember, you do not have to be -et*n even through a rear view mirror. Everv commercial establishment along the highwav is crer-ready to transmit word along the line of your presence, in addition in the fact that the driver*, of course, grapevine your probable whereabouts. It Mart* before that. Many time* members of vlic other or garage force in die Inane ter minal send the word along We * do not hriteve in hiding behind Ire*- or bushes, became the link value gained easily erased by the complete difgutt of drivers. One place where observations can he made m<ecT* by drivers i a tourist camp Ikcwu^e of the presence uf many parked cars, he cannot with anv decree of accuracy pick out your car as he drive* bv. It is our cus tom to get a conveniently located calms and make observations When one of our unit* drive* by, we can then follow with minimum of notice It, however, you Itelttve vour presence is discovered, it i< a good idea to proclaim yourself openly by flashing your lights and waving as you overtake the truck This takes from the mind of the driver a little of the idea that -.on are spying on him. At least some driver* will believe you just happened to overtake him. If po*shle, we believe it is a good idea to puli driver* off at a safe place and hand them a copy of the report you made. It it is good., he fce1 good. If it is bad, it is a good idea to let him know that sou cannot tolerate "cowboytng.* Mot all observation* arc made on the move. Parked trucks invite our men to <top in and talk over a cup of coffee We have found hitch-hiker-* asleep in truck* and other serious violations. Also the friendly cup ot coffee helps out the rela tionship with the better class of drivers. A cop}- of ail observation repmts. should go into the personnel files of the driver and published in a bulletin, or as in the case of my company, in tlie house organ. However, we do not publish all observations This would give too obvious a clue to the drivers as to the effectiveness ot our patrol work. We try always to teave an element of k-uhi iti their mind* a* to how often we m.ght be observing them without lettoig them know it. e mc of the b g problem* * safety department in a company where there is fe?ed equipment and even company- owned equipment on Imc-hau! operation, \+ getting the had driver* into the safety office lor a talk Many times we do not see n driver once *n three months Wc adopted a rule that m addition to the adverse report itself, a special repent calling for disri- plmary action should accompany reports that arc especially bad These report forms arc printed on blue paper. This makes them stand uui. Tltcn the home office isstws a note to the ter minal where that driver i* likely to call next, on a flaming red form which Matesthat Driver John Doc on Unit so-and-so is to be dispatched to tl*e home terminal at once. In case that cannot be done, he is to be despatched in the direction ol tlie ter minal and other terminal dispatchers noti fied to send him on in to gel onto tlte carpet. Tim. color s-cltcm-c may sound childish, but a blue Tcport coming into ntir home office gets the right-of-way to jjiy de$k. after my boss has looked it over (which I encourage) and a flaming red card in the terminal mail is not likely to be mixed up with other office papers, accidental!} or -ympatlicticafly I might add that everv member of our Mali. except myself, actually enjoys this trailing work. \Vc have four cx-drivers as safer}' a^si?wnt>- It i* to tlwm like a pitcher striking out an opponent. They really like to show truckers that they cannot put any- 124 29th A'alional Safety Congress thing oxer on them. They are effective. One of oar men caught me doing 32 in a 2S zone and I did not know he was behind roe, a) though I wa& actually looking for him. In spite ol my personal dislike for trailing. I am sure it is so effective that it holds a very important position on oar safety pro gram. Accessories for Safety By A. W. MEINKE Superintendent, Audit and Engineering Department, Indemnity Insurance Company of North America, Philadelphia. Accessories not only help to prevent ac cidents. but also driving strain under trying conditions and conserve the driver's energy for other important duties. To ignore the numerous difficulties and worries of the commercial driver and to place upon him the entire responsibility for preventing accidents, la a mistake that is made too frequently. Poor visibility is one of the greatest problems of the driver. To improve visibility there are rear view mir rors, windshield wipers, sleet removers, de frosters, sura visors, rear curtains to kill head light glare from behind, anti-glare goggles or glasses, fog lamps, spot lights, etc. Many of these akls are not as com monly used as they should be. Is it because we are failing in our duty to assist the commercial driver? Another serious problem to the commer cial driver is to convey signals and warn ings to other motorists and pedestrians in the most effective manner. To help him carry out this responsibility there are stop lights, flasher bulbs, directional signals, col ored reflectors, marking lights-, red slags, flares, fusees, horns and backing buzzers. Backing buzzers are used with good re sults on taxicabs in New York Gty to pre vent pedestrians from walking behind the vehicle when it is about to back. Coaid wc profitably make greater use of backing buzzers, flasher bulbs, or some of these other accessories for signaling or warning others in the streets? The next problem of the driver is how to operate tire vehicle safely when road traction is low. To assist at such times there are tire chains, non-skid tire treads, tire regrooving tools, and road sanders Poor road traction costs us millions of dol lars every year. Arc we making full use of these accessories in an effort to ve some of those miJIicas? It is a right serious problem to stop a car or to hold a parked vehicle on a hill when brakes are not dependable. To assist the driver there are booster brakes, deceltromctcrs for testing brakes, hydraulic-brakeIkjuid coolers (to prevent vapor lock), and special parking brakes without the common rack and pawl lock that has been known to become worn and defective. Have wc done all wc can to prevent those deaths by mak ing and keeping brakes dependable with the aki of these accessories? Another group of accessories includes such items a$ special seats with deep springs to protect the seats of the driver's panties from rood jar, radios to soothe their shat tered nerves, and carbon-monoxide testers My last group of accessories are those that help the tired supervisor. They permit him to sit in the office away from draughts and colcK and at the same time exercise full road supervision. This group includes the speed governor, the service recorder (an indicator chart showing through the vibra tion of a needle just how steadily the vehicle is in operation), and two kinds of traffic eyes (one a device for taking pictures of unsafe driving acts, and the other an arrangement for proclaiming to the world through a system of lights asd boms any infraction of the speed law's. Have v.e given full consideration to the use of accessories for safety to help the driver who really Has a difficult |ob? Have we made full use of accessories for safety to .save lives and destruction to property? In a balanced fleet safety program, wc should not overlook the benefits of acces sories for safely. Commercial Vehicle Section 125 Report of the Committee on Commercial Vehicle Safety Films By DWIGHT D. GARDNER Personnel Director. Cwnwirebl Motor Freight Inc., Colombo*. O. One year ago we had the first showing of our first fleet safety film. Since that that almost 500 copies of **Defensive Driving** have been distributed. We have asked some of the purchasers what results bad come from the use of the film and here are ex cerpts from some of the replies: (1) "Since the purchase of the fleet film 'Defensive Driving.* we lave shown it at several loatioos on oar property- At every showing, we have heard nomeroos favorable comments.** (2) "The film was bailt around a truck operation but we operate buses; however, there is so much good in it that wc ose it at every safety meeting and have lent it to many oilier commercial fleets in this terri tory." (3) "We firmly believe that along with any safety meeting or talk the showing of a lecture adds materially in fixing Safety in the minds of employees and makes a more interesting meeting.** (4) ``Our thoughts concerning the value of this film may he judged from the fact we have purchased 23 copies of it.** (5) "Wc should have at least one new film a vear." At our last meeting, the Committee annooraced that a cataloging project was tender way for the fisting of available fleet safety films. However, die preparation of a cata log from scratch was felt to be unwise and m its place we have prepared Fleet Safety Memo Xo. 19. hater, based on suggestions and criticisms from oar members, this Memo will be revised in catalog form. We have a brand new commercial vehicle safety film In preparation. The title is, **What to Do If an Accident Happens." Wc expect to have it available for distribu tion about November 1, and believe it will be an oatstanding contribution to our fleet film library. THURSDAY MORNING SESSION October 10, 1940 Commercial Vehicle Safety Information, Please! Presiding* Dwto-fr M. McCrackek, Director, Traffic and Safety Bureau. Liberty Mutual Insurance Co . Boston. Mass. * The tension was planned as a panel dis cussion of accident problems commoo in the traffic safety field. Chairman McCracken introduced the members of the land. A Caldwell. Halc-Halcell Co,, McAkster. Okla. H. S- Cole. Assistant Superintendent, Evening Star Newspaper Co , Washington, D.C John W- Jacogson, F. J. Umiteil Drive way Co., Flint, Mtcb. Charles G. Morgan, Jr., Manager, Divi sion of Operations, American Trucking Associations, Washington, D. C. Fred W. Rice, Safety Engineer, Cush man Motor Delivery C Chicago. THURSDAY .LUNCHEON SESSION October 10,1940 Presiding: T B. Johnson*, Manager, Delivery Division, Marshall Field & Co, Chicago, and General Chairman, Commercial Vehicle Section, National Safely Council. 126 29th National Safety Congress Federal Safety Regulations By H. H. KELLY Chief, Section of Safety, Bureau of Motor Carriers, Interstate Commerce Commission, Washington, D. C. (The following is a summary of ex temporaneous remarks,,) Mr. Kelly outlined some of the activities oi various Government agencies in the field of highway safety- He mentioned the im portant contributions to uniformity in high way and bridge construction and mainte nance through the Federal Aid specifica tions, administered by the Public Roads Administration, and said that this work in building safer bridges and highways with reduced grades and wider curves and stand ard signs and markers must have, ultimately, important effects on highway safely. War Department specifications for Army vehicles, especially as regards their engine and brake performance, are improving ve hicle design, he said; and added that the training of drivers under the War Depart* tnenfs emergency' program may provide a new source of driving personnel for commetctal operators. He touched briefly upon vome outstanding examples of safe opera tion m Government fleets and spoke of the activities of live Federal Interdepartmental Safety Gwuwril in promoting the compila tion of accident-frequency records and the standardization of accident report forms. Turning to llte motor carrier safety regu lations of the Interstate Commerce Coramts ,-ion, Mr. Kelly pokc gratefully of the co operation of State agencies and the resulting vrugte*- toward nationwide uniformity in requirement* for the safety of bus and truck t lKrntsruri through adoption by the States of rules conforming to those of the Commis sion. He said that more than 75,000 copies of the Commission's "little blue book" of safety regulations had been sold to the pub lic, and that reprints of portion* of the booklet had been issued by numerous asso ciations of carriers, insurance companies, and others. Admitting that what he had said thus far sounded very encouraging and optimistic. Mr. Kelly warned the audience that die acci dent trend in the country as a whole, and in the motor transport industry as well, has turned upward this year, the rising acci dent figures constituting a challenge to all workers in this field. He said, however, that in the experience of leading fleets was Mill to be found the justification of safety' efforts, and cited the results of the National Safety Cooncil's annual safety contests, ami the competitions of such organizations as the American Trucking Associations, Inc., and the Naiiortal Association of Motor Bus Operators, as demonstration of results now being accomplished in keeping accident levels town and thereby saving lives and properly. In conclusion, he said that out or a tragic world crisis appeared to be emerging two facts of importance to the motor transport mdustry-^fu'**, increased reliance upon high way transportation, and second, imperative need for efficiency m operation---which is only another way of saying safety in opera tion THURSDAY AFTERNOON SESSION October 10,1940 Joint Session with Street and Highway Traffic and Transit Sections fFor a complete report of this session, see the Street and Highway Traffic Sessions, on page 88 of this volume ) W/VOC//?Ar.UArr Transit Section Officers 1939-1940 i-VioTtf/ Chairman--E. E Gr-.v*b, The Columbus & Southern Ohio Electric Co, bus, Ohio. /`uv-CAairwaw*-F- D- bm -^irrox, Atlantic Greyhound Line*. Charleston, \V. Va I'ice-Chairmaw---H. K- H*ikton\ St. Louts Public Service Co. St. Louis. Mo I'ice-Chairma#--). M. Oare. Public Serrice Corp, of X.}., Newark, h'. ,1. secretary--H,, \V. Whitcomp, Philadelphia Transportation Co, Philadelphia, Pa. J-regram Coinmitier Chairman--C. H. SH.vXfa, Youngstown Municipal Railway (*. Youngt-town, Ohio. hugincering Committee Chairmau--S. P. Amwpw-, York Railways Co, \ark. Pa Health Committee Chairman--J. B. Pokchek. Ohio Edison Co., Akron, Ohio Member hip Committee Chairman--M, F. Bvnxf, Yellow Cab Co., New Orleans. La Poster and Slide Committee Chairman--W 5 Hum. Chicago Rapid Transit i o. On cago, 111. _ ,, .^ , i'ublieity and .V-ws Letter Committee Chairman'*-K. A. l ixcH, L. S Fidelity & Vjuarants Co-. Baltimore. Aid. Sttatisties Committee Chairman-Si. A. K*.vft. Anuncatt Transit A*.<n,. New York, N A Taxicab Committee Chairman--) A. Lowio. Taxi Co. San Jo-c. Calif Members at Large-- M. W. Btctucbp, Chicago Rapid Tran-it Co, ChtvaK", IP. W. A. Bauw>. Tennessee Electric Power Co, Xa.-hrilSc. Tenn M A Dow. Grevbound Management Co. Clcschunk Ohio E. J. Kreh, Philadelphia Co. Pittsburgh, Pa. ^ O T. HcujrrH, Chicago North Shore & Milwaukee Railroad Co, Chicago. Ill R A AIcAhtml'r. Public Service Coordinated Tran-port. Newark, N, J A E Pauklh, Winnipeg Electric Co . Winnipeg. Canada. S H. Rcro. The L, E. M>ers Co, Chicago, III A P. SfHENtxiKF. National Pneumatic Co.. Rahwaj. V. j. H V.. SCKKUrotk. Capful Transit Co. Washington, I> C H. F- \Yem% W'c&i Penn Sy-tcni, Patt-hurgh. Pa G K. W'hjtmokk, Illinois-Iowa Power Co, Peoria, III Officers 1940-1941 OYft.'ru/ CAairwaa--E E `hour. The lolumbu* & Southern Ohio Electric C--, t bus, Ohio. first Piee-ChairmaH--V. D Shi.sci.eton, Atlantic lrc> hound Corp., Charleston. \\\ \a. second Pice Chairman--). M Orrs, Public Service Corp. of N J , Newark, N. J. Third rtee-Ckairmem--H. W. Whitcomb, Philadelphia Transportation Co, Philadelphia. Pa. Secretary--C H. Shane*. Youngstown Municipal Railway Co. Youngstown. Oliio. Program Committee Chmrman--S. P. Avtmifw*, York Railway.- K York. Pa Membership Committee Chairman--M. F. Btaxs. Toye Utu*. Yellow Cab G. Now Orleans, Lac Xeies Letter Committee Chcrimmo--W. S- Hm.ufji, Chicago Rapid Transit Co.. Chicaeo. Ill Statistics Committee Chairman---M. A. Kk.%rr, American Transit A--n,, New York. Y Y. * Pui General Cbaiimin 127 128 29th National Safety Congress Visual Education Committee Chairman--J. B. Poiche*, Ohio Edison Co., Akron, OhU*. Members at Large-- D. L Fenmeil, Kansas City Public Service Co,, Kansas City, Ido. H R, Horton, St. Louis Public Service Co,, St Lotus, Mo. E J. Kreh, Philadelphia Co., Pittsburgh, Pa. J. A. Lowsy, Mission Taxi Ox, San Jose, Calif, *R. A. McArthur, Public Service Coordinated Transport, Newark, N, J, A. E. Parjcer, Winnipeg Electric Co,, Winnipeg, Manitoba, Canada. *A. P. Schemdokf, National Pneumatic Co.. Rahway, N. J. *H. V. ScHRKiBgjt, Capital Transit Co., Washington, D. C. J. P. Tkettox, Indianapolis Railways Inc, Indianapolis, Ind. H- F. Woa, West Penn System, Pittsburgh, Pa. N. L. Youxc, Southeastern Greyhound Lines, Lexington, Ky,, * Past General Onirmaa MONDAY AFTERNOON SESSION October 7,1940 2'residmg. General Chairman, E, E, Gkoveii, Director of Safety and bus &r Southern Ohio Electric Co., Columbus, O. The CoIujm- Physical Condition and Visual Acuity as Factors in Accidents By GEORGE W. ZEIGLKR Chief Inspector, New Jersey Department of Motor Vehicles, Trenton, N, J. Some of the things I will say here may appear to be controversial. This is natural, because we In the Motor Vehicle Depart ment who do this work, are not physicians, but have been forced to base opr conclusions on our own experiences. The first drivers' license law was probably a revenue measure principally, because no e.vammatioQ was required. After a further lapse of time tame states, among which New Jersey was one of the first; started examining applicants for driver's "licenses. In tlie beginning little or no attention was paid to any bat tlte most obvious physical defects. Tbe examiners were concerned only with finding out whether or not the appli cant coukl handle the vehicle reasonably, well. It has only been in late years that consideration has been given to the physical condition of the driver; because fo's field of investigation Is so new there is little statistical data available. As thne goes on, 'however, we will undoubtedly build up a fund of information which I feel sure will justify the belief of many of us thar physi cal condition and visual acuity are extremely important. About 18 months ago Commissioner A, W. Magee of the Motor Vehicle Depart ment, asked the New Jersey Medical Sodct> to appoint a committee to study tbe question of physical condition, insofar as this cooditk>n relates to tbe driving practices. After more than a year's work, the committee re posted that because of the complex nature of the problem, it was not at present fa a position to make a detailed report or any recommendations, and has suggested tbe study be continued over a number of years. When completed, these studies will undoubtedly produce a report of the great est importance and may bring about farreaching changes in oar licensing procedure. For the present, therefor^ we are forced to depend upon our own experience fa order to judge whether or not eertafa types of physical difficulties, and r- Im should operate to bar the aff&cfted person from the possession of a driver's license. Wc in New Jersey, have reached certain conclusions m regard to the for re stricting drivers who stiffa* from various- diseases and also the need for restricting those drivers whose vision does not come Transit Section 12* up to the prescribed wawhrd. Information on which wc banc baaed these eoodurious has come to m from several somce*. Give is the acodwoe reporting system. In addition to tbe iipoct* mode by drivers, we receive numcronq reports front local police departments oad from oar own inspectors who are constantly fa tbe investiga tion of accidents. Chirana Cooperate \\e frequently receive reports now citi zens who inform the Co*t*rnteabocr of airy person who suffers from a physical defect or an illness which might affect the safe operation of a motor vehicle. The study of a large number of these re ports, over a considerable period, has led oar Motor Vehicle Commissioner to con clude that there are certain physical ailments which most be watched closely, because per sons who have these aliments may possibly be forced to give op their driver's licenses. So far there arc only three diseases which wr have used as a basis for the revocation of the driver's license. These are: epilepsy, diabetes and certain forms of heart disease. You must understand, of course, that fa ad dition to these specific diseases, there arc certain physical defects such as amputations, paralysis, etc, which might make it necesmrv to refuse a driver's license to the af flicted person. In certain of these defects such as ampu tation*, the condition is not progressive and it can frequently be compensated, especially in private driving. It Is possible; fa some of these rases, therefore, to license .the ap plicant with certain restrictions. One of the restrictions which may Interest you Is that we do not Kcertse applicants with physical defects, to operate vehicles used for the transportation of persons for hire, because we fed that the driver of a bus should be fa possession of all his faculties, because of the responsibility Imposed upon him. On the other hand, a disease such as epilepsy, is a real menace, if a person suffering from It is allowed to drive a motor vehicle. It has been our policy for a considerable period of time; to revoke the driver's license of any person found to be suffering from this disease. When called upon to surrender driver's li censes, these people will frequently contend they can be safe drivers, even though they suffer from epilepsy, for tbe reason that tiiey have ~ foce-lmowledge of an attack. While this may be true, mar cases, it H poor policy to rdfor upon ii, knwft we fan fa oer film, records of nrautroo* accidents which bait occurred because epilepsy has stricken an operator while driving. As a result of a new taw requiring the State Department of Health to report epil epsy cases to os, these people arc bring re quired to surrender their driver's licenses. Those of yoa who are obliged to investi gate prospective drivers as put of your work should make every effort to determine, before hiring them, whether or not they suffer from this disease. Ordinarily, this can be determined only by an exhaustive investigation among the applicant's friends and relatives, and if possible, by consultation with his persona] physician. Diabetes Some people may find it hard to believe that diabetes cm dfoahlr a person to the pout where he canimoe drive safely. The disease itself seldom docs disable a person. Our trouble has been with people who have refused or have been too careless to follow their doctor's directions. A diabetic patient who does not take the israalm prescribed for turn any go into a coeua as a result of his neglect. On the other hand, persons who do take fasalfa find it necessary to eat wlthfa a specified period. Persons who negled to eat after taking the Insulin may suffer irons faauJan shock. It will be clear, therefore, that person* who follow (heir doctor's di rections, may be safe operators. On the other hand, a person who cannot be de pended upon to obey Ids doctor, should not be permitted to drive. For these reasons, the fact that a person has diabetes does not by arty means, indicate that he should fawmedfatcly lose his driver's license. On the other hand, if a diabetic pa tient Is involved fa an accident and the evi dence discloses tint tbe accident was brought about by his disobedience' of his doctor's orders, mndoahtedty the Commissioner of Motor Vehicles will rale that reasonable groamds for revocation of his driver's li cense have been established. I do not want any one to get the Idea that I axu recommending that a person af flicted with diabetes be refused a position, because of his illness, bat I do want to point out to yon that before such a person is taken on. his post experience and habits of life \M) 29lh iVattonol Safety Congress $Hcuid be careiuUy investigated in order that *>ou may determine whether or not he is the type cl person who can he trusted to be careful. Heart Disease We do not have as much information on tiie various forms of heart disease as we do on the other two diseases mentioned. One reason for this is that these sufferers fre quently die in the accidents which arc brought about as the result of the ailment.. The death, of course, makes it impossible for us to get any 'lpccific information on the ailment itself. At present roost physicians, for reasons of ethics, are hesitant about dis closing to tle Motor Vehicle Department, information concerning their patients who suffer from one of the several forms of heart disease. The patient, himself, is the last person in the world who will reveal this information, and for this reason it is ex tremely difficult to handle a situation of this nature. There arc some physicians, however, wIk> have come to t!e conclusion lltat it is to the patient's own interest, to give up the driving of an automobile, if be is a sufferer from heart disease, and have so advised both the patient and ihe Department I believe that this attitude will become more widespread in the future. This will be one step toward reducing the number of those unexplainable accidents which occur so frequently. In order to being about this improved condition, of course, we must have the complete cooperation of the members of the medical fraternity. From what 1 have said, it must be obvious I hat we do net have nearly as much in for mation on various diseases and their rela tion to accidents, as we should have. It is obvious, therefore, that a study of this entire situation should be made, preferably by the medical profession. I believe this study should be undertaken in every state and that the reports should he correlated by a centra! committee which should be given power to prepare a report and recommend*lions so that the motor vehicle administra tors will have something definite to guide them If these studies are made, and tbe results turned over to the American As sociation of Motor Vehicle Administrators, we will have the basis foe a program of handling persons afflicted with which might make them unsafe operators. If some means can be found whereby dmtors can ethically furnish administrators with reports of patients wl>o are unsafe operators by reason of their phj steal condi tion, this will be another step forward in the accident reduction program. It is entirely possible, and indeed probable, that some of these steps cannot be taken without tJie passage of enabling legislation in the various states. If this type of legis lation appeals to you to be desirable, I earnestly recommend that yon initiate it ha your own state. Visual Acuity In New Jersey, we have found it advis able, to refuse a bus driver's license to a person who has suffered an amputation or who has vision in only one e>t or whose vision in the weaker eye, is less titan 20/LOO on the Snellen chart. As far as amputations are concerned, this Is probably in line with the procedure of most bus operators. There arc, however, some companies who do not consider that the lack of vision m one eye is sufficiently serious to warrant the refusal of a bus driver's job to the person concerned. However, the responsibility imposed on the driver of a bos is so great that I do not feel that a person with vision in only one eye, should be allowed to drive one We have in New Jersey, a record of acci dents involving persons afflicted in this way. The records show that they were consist ently involved in more accxknts than per sons with vision in both eyes. New Jersey started giving vision tests m 1927. At first the test was gi\en by person* engaged in the correction of vision as a pro fession. After a short time the work was taken over by* our own inspectors, because the other method had proved unsatisfactory. There are a number of systems m use, some of which are quite simple; some of which are very elaborate. I do not recommend the use of a system which is too simple, such as where a Snellen chart might be bung on a tree in the vicinity of the road test; nor do I recommend a very elaborate system, for the reason it takes too much time and brings out information which is not needed. There is one point which sliould be emphasized here, and that is that whatever type of test is used, it must be uniform throughout the state. The test given by ns is relatively simple Transit Section Ul ami can I* given quae speedily. This is im ducting and wc expect i.o gather consider portant in a 'taw where wc must examine able information on it during the coming approximately I-*>.000 appfacam* a year, with about 50 men available While this text ha> given quire eod revolt- wc arc of the oj4n>un that it ran be improved and wc arc now cmraged in the 'twl) of an en tirely new type of te*t which, when c**mplcictl may give- > much more information on tin: virion of driver*. The new test is in year One question which is. in my opinion, highly important and to which, so far, littl* attention lias been paid, is that of depth per ception. I beliesc it i* a factor in mam ac cidents It seems to me that a person who is allowed to operate a motor vehicle should at least be able to judge, approxi an experimental -*tagc and is being given as an addition to the standard text. Because we ha\e so luite ittformation on it, I do not think it advisable to discuss it at this time. When our work has been completed the result* will be published and made avail able. mately, how far away another motor ve hicle. a pedestrian or a fixed object may be from him. I have personally examined a number of drivers who have been involved la fata) and serious personal Injury acci dents. In a large number of these cases, where the accident could not be explained As far as the more elaborate tests are con cerned, they are probably very fine in their way, but in my opinion they take entirely too much time and, as 1 sax! before, bring out information which is not needed. I be lieve 1 have said already that we require at least 20/50 vision in at least one eye. with the exception, of course, of bus drivers. Some states are requiring 20/40 vision oral some require only 20/60. Either of these standards will probably prove quite satisfac tory'* provided that every effort is made to dick to the standard itself, and also to see to it that the text is given m such a way that exact results will be obtained. in any other way. I have found a lack of depth perception which would, obviously ex plain live accident, because die driver %va unable, bj reason of his affliction, to judge distance properly. In making lhe>c tests t have made use of an adaptation of the oldfashioned stereoscope as well as the Howard depth perception apparatus used in live United States Navy. While these tests are necessarily slow* and for this reason difficult to give to all applicants for driver's li censes, under otir present system, they appear to me to be of sufficient Importance to be adopted generally, even though this adoption may involve the expenditure of funds for additional personnel. Field of Vision Unquestionably, a test of this type should In addition to the visual test, we have lie given to applicants for bus driver'# job?. given considerable thought to the idea of testing the field of vision of the driver. We Color Blindness will be m x much better position to report on this pha*r of the subject after our ex periments have been completed. I atm not yet convinced that we shook! refuse to In cense a person whose field of vision is partly restricted because my experience, so far, has led me to believe that these people, if their virion is otherwise satisfactory, can compensate for tbe tack of field. This Is not true, of coarse, if tbe field is restricted too much. Color-Mindncis' appears to be a contro versial subject. A number of the states do not reject for this affliction, giving as their reason, the fact that some: color-blind per sons are able to compensate for their trouble, and are able to avoid accidents, evert though they* are unable to determine the color of signal fights. I am unable to agree completely with this idea. A color-blind person will tell you that he can judge by the armgement of the- signal, which of the We are also studying the question ot - lights in the signal system is lit. He will night blindness and susceptibility to glare. also set forth tbe contention that he can As you probably know already, physician* judge the indication by the operation of claim that this condition, m many cases. Is other cars. These contentions set forth a caused by lack of vitamin A m the diet, and good argument for the color-blind operator, that it can be corrected when the accessary bat they fail to take into account, the con vitamin* arc supplied. This question is also ditions of operation. For instance: It may part of ihe experiment which we are con he posrible for a color-blind person to oper 132 29th National Safety Congress ate by means of the position of the sigual on a dear day, when there is nothing to ob struct his vision. The situation on a rainy, foggy night is, however, quite different. Then the operator cannot see the signal it self nor in many cases, can he see the signal mast, but must depend for guidance entirely on his color-sense. Then, too, signal systems are not yet uni form. The argument that a color-blind per son can be guided by the actions of other cars ts equally faflackras for the reason fh*t there are frequently times when no other traffic is visible to the operator, tinder the circumstances, he smist depend entirely on his own judgment I am not so much concerned about a per son who has difficulty with the amber color, nor am I unduly exercised over a person who has trouble with the green. I contend, however, that a person who is red blind (and these people are sufficiently nu merous to be cause for trouble), that these people should rot be granted driver's li censes, because if a man is unable bo tefl of his own knowledge, when he should step Ms car, he is not a safe person to be allowed to operate motor vehicles oo our busy high way*- In New Jersey, therefore, we follow the practice of rejecting the red blind sm every instance. There are numerous tests for color-blind ness in use today--some are so elaborate and take up so much time that they are vir tually useless to a motor vehicle adminis trator. Others are relatively simple and en tirely practical from the point of view of the driver's license test At one time in New Jersey we made me of the yam test We found it was too elaborate and not particu larly fair to toe applicant. . The Ishihara test has been used in New Jersey. This is a remarkable test and pro duces almost tmfaiEng results. However, It is entirely too difficult for toe average person and not at all necessary, because there are numerous persons who can iden tify the colors in the signal lights with ?y who cannot pass the Ishihara test. The New Jersey test now constats of a single lens mounted in the top of the eye box. We use a single lens in preference to three sepa rate lenses m order that the applicant win not be able to "play position*' on the lights. Mounted in back of the lens in such a way that the Hght value coming through the lens will be equal, is a red bulb, green bolb and amber bulb. The inspector is able to light any of the three tights at wilL If the appli cant falls on tins test he is advised to see his oculist or optometrist, la the event that he returns and again fails, he Is rejected 1 Color Ignorance Then* are some people who are color-fcfind and there are a Urge wirnilwT who are colorignorant These color-ignorant people, for some reason or another, have never t*Wr the trouble to learn colors and it is quite possible to correct their trouble with a few days' study. In making tests for color blindness for driver's license purposes, the examiner should be very careful to stick to purely red, green and amber. The use of other colors toads to confuse both the appli cant and the examiner and may bring about results which are false. " Other Defects In addition to the obvious physical defects which I have discussed, there arc others not so simple which may enter into the safe operation of motor vehicles. For metamee, the question of fatigue is an important one from the point of view of the bus operator nod the transit industry. The New Jersey law limits the operation of buses by any par ticular driver to a maT-timmim of 12 consecu tive boors or 12 hours in any 16. The rule* of the Interstalc Commerce Comratssioa in regard to bos and trade operations, are still more severe, limiting the operation, tmkr these circumstances, to 10 hours ia *my day with a weekly maximum of 60 hoars, and in exceptional cases, 70 boors. While the question of fatigue concerns every driver of motor vehicles, it is es pecially important in the case of bos oper ators. They should be limited m their boors of work so that they will not become unduly tired and it is the responsibility of the man agement to see to it that these driven, when off duty, secure a sufficient aapnmft of rest so that they will be able to resume their duties the following day, folly recovered and able to take care of themselves and their passengers. From the foregoing it will he dear that we do not as yet have sufficient information on physical coocfitioot, varioos diseases and visual acuity, to accurately de- f/aksit Section 133 (ermine tiieir value as factors m acckWmts. We have had sufficient experience, however, to show that the conditions mentioned do assume major roles an some of the accidents with which we arc concerned. In our attempts to redace automobile ac tadents we have progressed through various stages from the simple driver's license ex amination to the present type of test winch incorporates a severe read lest and a com plete visual test. We have oow reached the stage where as far as the driver is con cerned, we mast go farther into his physical condition and have a more complete knowl edge of him before he is permitted to oper ate, on our highways. In addition to this I believe that hc will shortly reach the point where we will reexamine, at staled periods, all of oar Bcaased drivers. We have made use of safety education as a means of developing in the mind of the driver, the fact that it is up to him to oper ate tn a maTMrrr consistent with safety. All of these steps have proven of great value as witness our present accident record com pared with the records of a few years ago. - Much, however, remains to be done, ami I am firmly convinced that ooe of the most important fields is that of physical condition as far as the driver is concerned. Selection, Training and Retraining of Operators in Transportation Service By J. G. DICKINSON, Superintendent of Accident Prevention; WILLIAM HACKBAStTH, Snpemrieoc of Tremjn*; end PAUL STARK, Aveiitent Supervisor of Triininf;, The Mihnuk** Electric Railway and Tr*nport Co., Milwaukee, Wi. Transportation safety depends oca selection and training of vehicle operators. The transit todctslry has for many years been vitally concerned with this problem and transporta tion operating executive* have developed many plans for Its achievement Perhaps there is ato other Industry which, must de pend so completely cm the individual effi ciency of its employes. There is oo supply of skilled operators on the market. Every new employe must be carefolly selected and trained. The prob lem of restraining also assumes sizeable pro portions. For the observation and judgment test the applicant is given a picture of an accident whkh be is to study for a limited time. The picture is then removed, and he is given a test paper. Several multiple-choice ques tions are asked about the accident picture, la add!tinan, there are several multiple-choice questions intended to test common-sense. There are also several problem* involving simple mental arithmetic to test the appli cant's ability to make change for fare col lection. This observation and judgment test requires about 30 mumtes. When completed, it is scored, and the applicant is then given the performance test. A comprehensive study was made of the operator's job to determine just what abili ties a man must possess to become efficient. With this m mind, the performance test was developed to measure the physical and mental abilities of the applicant. The test equipment consists primarily of a signal board, an operating pedestal, and a recording device. Visual and audible sig nals are transmitted from the signal board, and the applicant responds to them with hand and foot operations. These are re corded and it is possible to measure reaction coordination of hand and foot move ments, ahHaty to learn, general nervous con dition, fatigue, and tendency to be distracted. Administration of the performance test Is divided into two periods, the training period and the tost period. During the former, the applicant is taught the responses to the signals and allowed to practice them. The training time is recorded as well as the errors nude. For the test the signals are given at an increased rate and are Inter spersed more than for the training period. The test is scared. In effect the idea of the performance test is very simple. We give the applicant a sample job, train him in the performance of this job, observe the time required for training, and then tost his ability after he has been trained. Observing and measur ing the manner in whkh the applicant learns 134 29th National Safety Congress this new job is the secret of the whole stops, and equipped with an electric track thing. switch, block signals, and secdon insulators The entire selection test procedure re it has proved an ideal training ground. quires about one and a half hours per appli The regular stops, which are both on level cant. Our experience with it has demon ground and on grade, are given street names strated conclusively that through it appli which the student calls in standard manner. cants vviio are not suitable for the job are immediately weeded out Wc know that an applicant who has passed the tests is a man w hum w e can train to be an efficient op erator. In 192$, we completed a bus practice road laid out inside the loop of the training trade The practice road is also designed with hills and curves, and it has road inter sections am} regular stops, some of which Final Interview are located on grades. Part of the road surface is macadam and part b concrete. AtU: passing the selection tests the appli cant i given a final interview by the Super intendent of transportation who gives final With the advent of the tracktef-s trolley, m 1936, we installed trackless trolley over head above the bos practice road. approval (or live student to enter training. The student then reports to the supervisor Training Building of training at the transportation training building and is given a cap, badge, punch, ami money cltanger, and is assigned to a class The transportation training building, lo cated adjacent to the training track. Houses the office of the training supervisor and is the headquarters for transportaikxt train Whde wc were developing the selection ing acimlies. On its second Hoot are five procedure m the early days of the training classrooms equipped for the instruction of fo-foon, we also teamed that it was difficult small grotips. One room is suitable for the to train a new man if too much informa use of projection equipment. It sfo-o has tion were given at one time and if too facilities for testing special equipment. An much were expected at the start. We found other room is used largely for the conductor that si was not very practical to instruct part of operator training. This has a large shout the equipment that was being oper amount of bulletin board space where sched ated white nut on the streets where traffic ules, transfers, accident arid equipment con demanded the student's attention. The eonelusion was soon reached that if it was to teach an operator the ftindaof vehicle operation away from dition reports may be mounted. Standard railings can be set up here for practice in the mechanical manipulations necessary for the conductor's job. The third room irathe, ne could reduce tle training time ,u*d a; tlic same time avoid accidents. We t-xpcriiKuntcd at first with a practice (vote u Inch ua subject to a minimum of traffic ^it^eMuei and winds did not delay regu it uied principally for training molomten Here is a row of controllers where starting and notching practice is given on dead cqwipmen* The fifth trla*r<vwn i* devoted rr training hus operator*. lar -ervicc materially, This proved-'to l>e -lutiriently advantageous to encourage the 8-lea ot a practice track entirely away from trect traffic, on oar oun private property. Fortunately wt bad a tract of land, adjoin ing one of the largest car stations bn the *\-tem. which was sufficient to accommodate a quarter-mile track. With approval for the u-e of this land for training purposes, wc constructed the training track in 1926. This track incorporates regular road fea tures and provides the student experience hf ma ting practically every type of operat ing condition which he will encounter later in operation over cur system. Laid out with hills, curves, street crossings, and regular The first floor of the training butldmg is assigned to a wide variety of cut-away eqmpment and demonstration models. Here is a shortened model street car stripped in such manner that all electrical and air brake equipment is exposed, and the flow of electric current and compressed air can be traced. A demonstration hoard of the power circuit is used to show students, ix>vr the four motors on a ear are connected, bow certain motors may be cut out of the circuit, how resistance is used to control the speed of the motors, and many other features. There is an air brake demonstra tion board with the actual equipment tet up on a rack. A railway truck is exhibited Transit Section 135 as are also various cut-away models of bus motors, transmission and differential. fn addition to training track, road and equipment it is, of course, essential to have an adequate staff of instructors. The super visor of training and his assistant conduct live program with, the aid of eight regular instructors. AU of these teachers have been long in the service and who hold the same rank as street supervisors. We have also organised a corps of 35 platform instruc tors. A platform instructor Is a regular operator - who by experience, aptitude, and inuring is best qualified to carry on the training of student operators white they are in training under actual operating conditto*** out on the system. The platform instructors were picked through interviews and selection tests. The transportation training division is pro vided with adequate clerical help ami keep complete records of every operator's per prevention and reporting are given proper attention. At the end of the three-day period each student is taken to the car station out of which he is to work, introduced to tlur division superintendent, and assigned to a platform instructor. The second period oC the training program now begins. The student, who has been instructed in his future duties and has be come accustomed to the feel of the con trols, now is allowed to operate for the first time carrying passengers in traffic. He i* assigned to regular runs and continues with the platform instructor for at least 15 4> We have teemed that best result* in (rain ing are attained when the student-operator is assigned to one carefully selected and trained platform instructor who continues with hint through the entire training period. When the platform instructor believes that the student lias acquired sufficient skill, be is reported as bring ready for final test formance. Our student training program can best le The Final Teat ruddered a.4- divided into three periods The first period const*-** of three dav* of training at the building and on the training track Thi< is followed b\ a period of about 15 cia\s. during which die student is as- Mfcucd to a platform instructor from the car `tattoo where he is to work biter. The third period, of one day, takes him back to the training building for a check-up and final examination before being turned in as For the final test, the third training pro gram period, he returns to the transpor tation training building where a full day's examination i* conducted to determine whether ho has acquired sufficient knowl edge, skill and ability to be passed. An examination m the Wisconsin traffic code i made a part of ibis check-up. Haring passed satisfactorily, the student is turned in. as wc say, to become an operator and assigned a regular operator. For the first training period instruction u giteu usually to small classes of lour or fire student*. Instruction begins with an iiUtudticiory classroom lecture sire-sing die importance of the job and what it means to ile new employe as well as to the com pany. Each student is given act operator's manual winch forms the basis for instruc tion on such matters as our equipment, fare collection, rules and regulations, public rela tions, and information about Milwaukee. The instruction program is varied and is not alkmed to become monotonous. Considerable tune is spent on the training track. Students are always anxious to get their tiands on the controls of a piece of equipment, and training track practice is introduced carls in the program. Classroom instruction, lec tures and demonstration*, and practice on (he training track continue for three days, to wcwk as a regular employe. Now, for the first time, he takes his car out alone on a run. Even then, his training is not entirely e&enplcted. Regular instructors are aligned to follow up and ride with turn at 'east once a day and frequently twice a day. Thi* regular follow-up is continued fur from two weeks to one month or until the regular instructor believes setch close follow-up is no longer necessary- Then for two or three months the regular-instructor rides with, teaches and rates the new operator regu larly but not so frequently4. Finally he is placed in the regular schedule of follow-up initroction in use for all regular operators. Careful follow-up has become a very important part of our program, particularly during the first few4 months of operating experience. constantly under (he direction of regular With our student training program wc training imtructois. Training in accident believe that we have control of all the in- 136 29th National Safety Congress forraatiem tliat gets to a new operator. We instruction reports to be made in this man feel certain the habits formed are correct, ner. and that careless and wrong Instructions will not conflict with best practice. There are many situations which occur infrequently and are very confusing to a new operator, but if the training program provides in struction on these infrequent happenings, we are able to get uniform performance in moat of then We have attempted to incorporate every important situation somewhere in die training program. After an operator has been on street car woek ior a reasonable time, he is eligible to apply for bus operation when it is avail able. He may rhea be tested again, and is sent back for retraining. This program is very similar to that followed for student operators except that daring I!be practice training there is no daplteation of work already covered. Instruction and training oil the bos practice road arc given by the regular instructors. Then the apptiouul is assigned to a platform instructor oa regu lar runs. A final examination is given a&d follow-up instructions are made by regular instructors until the retraining is considered complete. Manuals and mstruction material are issued to augment this training. AH of this training work is supploacojrd by numerous other activities. We use Na tional Safety Council material freely to help keep accident prevention before our op erators. Sound-slide films, including seven of our own production, have been exhibited to most of our operators at car stations. That scries of programs covered subjects pertinent to good public relations. Our cm- pkffd* magazine carries articles each month oa tralma& accident prevention and related subjects. At times special projects have been in cluded a the training program. An example Ls a study of accident-prone men which we conducted a few years ago and m winch the accident rate for tbe group of often under comsidcratioo was improved 82 per oast two years. More recently, vbtn trackless trolleys were introduced on our system, we began to experience a dispropor tionate number of faffimg-cn-car accident*-. A detailed study of these cases detennuacd causes and through our training program we have been able to produce a 60 per cent redtaction fa that type of accident. When an operator hss operated a bos All accident reports are routed through satisfactorily for a reasonable time, he may the traiukg drvistoa where each case i- apply for trackless trolley work If stack posted oa tbe individual operator's record. work is available, he again Lx tested and This continuous record furnishes at a glance retrained through a program incorporating each operator's accident experience and instruction and training at the transporta makes posable Quick investigation when tion building and on the practice rood, a needed. As soon as a. chargeable accident period of operation with a platform in is posted, we refer the case to a regular structor, final examination, and that follow follow-up instructor who Immediately guts up inspections by regular instructors. in touch with the operator to review with Out present training procedure has been him tbe cause tad to provide any instruc m effect about 14 years Since 1928 we tion necessary to correct the difficulty. When have trained approximately 2,600 men for ever an operator experiences two chargeable street car, bus, or trackless, trolley service. Follow-up instructions are made regu lar!} b> instructors who cover the entire personnel. We long since abandoned the idea of instruction reports giving* single gradings such as "good" or "excellent," Otir proem plan requires that rating be accord ing to a definite plan. A manual which describes all of die operating faults that accidents within a year, be is sent to the supervisor of training for an extensive In terview, reviewing bis record completol} Follow-tip instructions arc also scheduled uaaaediately. and all effort is made to dis cover and eliminate accident causes. This procedure is also followed in cases of operators whose records mdirate too fre quent noo-chargcaWc accidents. an Qpcuiuir might be subject to is used Naturally, wc are keenly interested in the for follow-up instruction. The operator is given a grade on each of 17 general classes of operating skill, and a report is sent to the training division. We have learned that it results attained through our extensive pro gram. One measure of accomplishment is found in the declining accidents and acci dent costs. js mneb more satisfactory for follow-up In 1927 wc began classifying- accident * as Tronsit Section 137 chargeable and non-chargeable Since that year tbe number of chargeable accidents has bees reduced more thou 50 per cent. At tbe start of tbe record 22 per cent of the opera tors completed die year free from chargeable acodeat. In 1939 over 1,000 operators, nearly 70 par cent of the operating personnel, had ao chargeable acodents, Tbe peak ao total number of accidents was reached in 1929 with* tbe preceding four years also producing near peak records. Since (bat period the number of accidents was reduced to a minimum m 1933 with the redaction equal to 49 per cent. In 1939 the redaction was 4413 per cent. Accident costs are a sizeable figure in transportation operation. Money spent m settlement of claims produces no profit and furnishes as tangible results only a file of releases. The highest figure in our accident costs was reached m 1924. From that year there was a steady trend of redaction which in 1913 amounted to 62.6 per cent Follow ing that there was some increase to run amount in 193o equal to 52.2 per cent of the 1924 peak. Daring the last three years the trend has again been downward with a reduction in 1939 of 59.5 per cent in com parison with 1924. It is interesting to note that in recent years we have conducted a large amount of retraining made necessary' by the adifi- tkms and changes in operation from street car service to bus and trackless trolley service- Since accident costs arc a major operat ing expense, ft ts natural that we measure the effectiveness of our training program in terms of accident figures. We believe, also, that there has been other accomplish ment which is not so tangible; The pro gram bas produced substantial Improvement In operation and has been a benefit m public relations. Experience since the start of the training program tots convinced fits that transporta tion safely depends on training. WEDNESDAY AFTERNOON SESSION October 10, 1940 Transit Safety Information, Please 1 The discussion leaders were E, J, Xrcii, Manager, Accident Prevention, Philadelphia Get, Pittsburgh, Pa, aod H. W. Whitcomb, Chief, Brnream of Accident Prevention, Phil adelphia. Transportation Co,, Philadelphia, Pa. Tbe sesrico featured a series of laniera Mutes illustrating safe and hazardous con ditions and practices encountered by trans portation companies. The slides were dis cussed in detail, first, by the discussion leaders, and then by the ftttdieoce. Some of tbe salient points of discussion were tbe advantages of three steps on buses and troBcy cars instead of the conventional two. Tins permits smaller risers and nukes it easier for the passengers. It was stated flat step riser heights should be uniform wherever feasible. Tbe step heights on various buses used m trial operation by the Philadelphia Trams- portatioa Co. range from 14)4 to 16 inches trom street to first step, and from Bfrt to 13^4 toebes for Use next or succeeding steps. They prefer, from a safety standpoint, a first step of tbe necessary bright of IS inches and two uniform steps of 8)4 todies at both frost and center doors. The point was also made that except where there is ample space to bring both ilie front doors of the bus within easy stepping distance of tbe curb. It is safer to make the stop in tbe moving traffic lane. Attempting to pull a bos in adjacent aod parallel to the curb where there is not sutfid-eftt space sets tip three separate and distinct hazards. (1) Possibility of colliding with auto parked nearest coraer. (Z) Possibility of discharging passengers from a position where they are likely to t(4-p on (he edge of curbing and fall. This is 138 29th National Safety Congress particularly true with the center exit door which often is in a position sufficiently close to the curb for passengers to attempt to reach the sidewalk, but far enough away to ma.ke a misstep likely. (J) Possibility of collision with another vehicle upon re-entering the moving traffic lane. It iv a* also suggested that the present trend toward increased interior illumination on buses and streetcars may cause a glare condition, especially in sections of the city where street lighting is not adequate. Pos sible hazards created by too much interior light are: (1) Possibility of alighting passengers falling due to temporary blindness resultmg from effect on eyes of a .sudden change from f*j iyht lights to darkness. (2) Possibility of increased vehicle and pedestrian collisions when operator toms from fare collecting and brightness of vehicle to darkness of outside street as ve hicle is started. (3) Increase in direct or reflected glare on operator's windshield. The point in increased illumination *. =: value ceases and hazard sets in can be de termined only by considerable study. But rt is something for transit operators to think about. Traffic engineering studies were pointed out as needed in solving various traffic prob lems at concern to bus sad street car op erators. An analysis of accident causes frequently shows a need for physical im provements. The importance of full co operation with the city traffic engineer by transit officials was emphasised. The location of a street car stop too far from the intersection to give free access to a comer gas station was shown to be a primary cause of accidents m one of the illustrations. Rc-location of the *p at the standard position near the m!cr*ectton elim inated the majority of accident* as thi* particular spot. THURSDAY AFTERNOON SESSION October 10.1940 Joint Session with Commercial Vehicle and Street and Highway Traffic Sections i For a full report of this session see the Street and Highway Traffic Sessions, on ptgc 88 of this volume.) FRIDAY MORNING SESSION October 11. UMO Joint Session with Child Education and Street and Highway Traffic Sections (For a foil report of tins region see the Child Education sessions, on page I6S of this volume.) . SPJOURNAfENT Child Education Section Officers 1939-1940 C'tncriil Chairman--J. Axpuew- Hoii.n, Agricultural & Mechanical College. Stillwater. Okla. * t~tie~Cltairiu*tt--Ned H. Deaki*,iknh l*rmi, School of Genera! Education, New York Uni versity. New York, i\\ Y. Secretory---Maiuax Teuorj?, National Safety Council, Inc, Chicago. Officers 1940-1941 Getterol Chairman,, jf. Ax&rjew Hot.lev, Plead, Department of Teacher Education, School of Commerce, A and M College,, Stillwater, Okla, *ice -Chairman, Ned H. Ucarworv Dean, School of General Education, New York Urn* vecrity, New York CitySecretary, Mariam Tru'ORn, Xaticmal Safety Council, live,, Chicago WEDNESDAY MOKNING SESSION Octolrcr 9,1910 A Symposium on Current Problems in Safety Education Presiding, Maw t.v Tf/ n-kp, National Safety Council, Inc, Chicago. Translating Safety Concepts into Action By EEWIS A. RIDEY Research Consultant, National Conservation Bureau, New York City The present world situation has brought a great many of us to a realization that the teaming of our emotions is perhaps at* more vital moment than the training ot cmr log ical faculties. There i> n suspicion abroad that the power to think dispassionately may not have as great a survival value a* the power to fc1 passionately,. In our eagerness to leant how to think clearly with the ucmtal lobes of the brain, perhaps we have neg lected that powerful energizing procc--> that *omc call "thoiking with the Wood.*4 \Vlien I fim considered tine question of what modem activity offered the greatest scope for experimentation on emotion in action, I realized that driving an automobile was our greatest national game. Further more, aoci best of aW. it was the least in hibited by ancient custom* Today 40.000,000 Americans are driving cars. Furthermore, m ck> and suburban traffic an average driver makes between 200 and 400 "psycho-dynamic" contacts with other drivers every hour.. Tlwtse contacts in volve both emotional conflict and coopera tion and thev require not merely good re flective thinking, but a type of flash-quick observation and menial judgment which con stituted the instinctive or ''kinesthetic'' in telligence that 1 was seeking particularly to explore. I cannot make clear thU cmouon&i aj* preach to driving skill until l have offered some explanation of the relationships be tween our upper level o conscious idea and those deeper semiconscious levels of control which athletes so plainly use. The situation in respect to conscious 139 1-40 29th National Safety Congress knowledge and its emoticnuUfy digested "ac "cud-sack" of his cortsoou* menior> He tion feeling" can be tUustnried by the case can produce most of this information at any of a beginner driving his car who la letter- timer for examination or defealev bo* ft t* perfect in all the tables, formulas, and text lightly held and easily changed or discarded- book data He knows fiis car momcutxaais, He does not yet feel it strcegJy in his action btaking distances and reaction times. He centers. Emotionally he has not yet digested las memorized all the rales and regulations it into the deep and powerful motives that amd traffic laws. Suddenly a pedestrian energize and coqfrol his dynamic behavior. makes a false move and steps out into bis ft might be chimed, therefore, that path. The student has no time now to look at Jus speedometer or calculate how many "Knowledge is power"--only when knowl edge has been emotionally digested. feet away he is--no time to remember his momentum formulas and frictional coeffi cient*. He lias, if be is lucky, the small half of a secood m which to sense his momen tum, sense the amount of tire grip he ac A fencer or boxer does not cooscaoasly remember coe-tenth of the lightning-like interplay that he observes and plans and exectries in the furious few mutates of his tually has on the actual pavement under boat. Nevertheless, some form of subcoo- him, sense the movement of other cars and * soOtt* directive intelligence was In charge of pedestrians that might interfere with his turning quickly, make a shrewd decision as his activities during those momenta It is this level of intelligence that I think might to his stop-turn, and execute It with tmbesi- properly be designated as "instractive." tant muscular skill. Belov, this obviously trainable level of "Instinct!va Skill" emotional control there Ucs another level which 1 would call the "autonomic lever of This complex interplay of sense observa tion, subconscious decision and muscle re action makes up the faculty and function that I would propose to call "instinctive skillu This is the action faculty that our research training is seeking to develop. It is too unconsciously quick for the slower proc ess of reflective thinking. The terms "good halm" and "conditioned response" fall short of it because this larger instinctive control includes an element of trained observation and an element of intelligent decision which our idea ot habit does not cover. Most of intelligence. On tills level our pattern of behavior Is even harder and slower to change or condition. Nevertheless it is quite plain that on this level, also, some form of intelligent observation and direc tive decision takes care of the way in which our glands and other organs deal with such emergencies as wounds, fractures, bad air. bad food, fatigue, infection and poisons Down below this autonomic level lie the elemental urges and dynamic emotional bal ances which I propose to discuss a little later. us use the word habit as an automatic We might compare our whole directive phydral response to a fixed condition or control system to an iceberg that floats one- stimulus. seventh above the level of consciousness and But there is nothing mechanical, or fixed about our instinctive intelligence; tike a flash it observes every new complex situa tion am! *. quickly assembles a varied re sponse to fit the conditions observed. This msamciive type of intelligence is. used by athletes and taught by coaches as an every day experience. The factual information that we offer a student by word of mouth or m books and about six-sevenths below that level. This rough comparison might help suggest that our behavior control system is one indivis ible functional unit in which the emergent section is open to self-conscious exammatron and the .Urect command of conscious will, while the submergent section is out of reach of quick conscious adjustment ami can be altered only by repeated suggestion and the use of strongly emotionalized practice. classroom instruction might be Kkcned to Must Establish Cooperation the cud a cow chews. The cow takes m raw fodder, selects and rejects and chews it into 3hapc for further digestion. Similarly, the student accepts a certain amount of factual information, works it over into what we cal) opinion or knowledge, and stores this in the The essentia] problem of education for effective living is to - establish a smooth working cooperation between reflective '.inking and its executive partner, instinc tive feeling. Thinking with ibe mind should be the master, and thinking with the blood Citiid fcductUion Section 141 should be the body servant of our person ality. If, would be ruinous to make instinct the strategist and leader of our personality. It is equally ruinous to make reflective tfcwikiwy the operating manager of action. Such an ernnrionai-rnental partnership de pends n the leadership of our mind and 'puis * ruahfcshiag the ideals and broad policies os oust conduct. Ttie conscious mtdSigcnce is able to select aod prepare that purs of experience which it considers stat able foe emotional digestion. By such ftdectkm and by repeated self suggestion the rcurciQ-- iueriPIgujCJ has power to condition our --tafpTc controls. Furthermore, by Effective and controlled action, however, never results from our attraction* com pletely destroying our rcpulsjoos* An un balanced idealist is one whose dreams of perfection blind him to the necessary self interest of himself and others. An unbal anced miser is one whose selfishness blinds him to the generosity and idealism that other people possess and that he himself needs. Building up a better world depend* upon nur making the attraction of kindliness, co operation and generosity master over the inherent and necessary repulsions of dislike, fear and selfishness. attdhpcot will and moral choice the high Motives for Safety er level of oecr directive control, man's qent a* we can rt, is able to establish the A*"ir>i--f leadership of either attraction or ~rywiliinii m the elemental emotional bal ance The positive forces of creative &ood will at. if we have the will and the irntcUijoeoce. dcianie fife's destructive hates and fear*. Either one of two such opposed and nec essary emotional motives coo be emphasized or made dominant m dealing with safety. One is die way of skill aod adventure, and the other is the way of caution and escape. Tbe ideal gives the love of skill and adven ture the edge over an active fear of the dangers and difficulties. On the other head, I odcr cot further statement o emotional do great skill or success In living can be retefeoushap which I think is the most fun gained by neglecting the risks of any ven damental of aiit Below all the various spe ture. cific levels of control lies the emotional procure balance that famishes hfe with its cratrrt nr dcstrnelive dominance and di The present traffic safety movement has developed a valuable and necessary knowl edge of the difficulties and limitations of otir rection. highways and automobiles. We could not There Is a very sample and fundamental drive well without such knowledge. Further energy rrkukxxship that shapes our physical more. it has brought out many vital points ueuverse: A force is never actual or active in respect to skilled habits. Some very fine until it meets a resistance. Mescal wxl crooriomal balance 1xas always been the ideal oi human behavior and char acter Stack balance means the restraint of ooc force or emotion by an opposite force. The force of selfishness is restrained by the resistance of generosity. Tbe force of emo tional attraction is checked and restrained by a necessary repulsion. The desire to five is balanced by a craving to kill ourselves. Just as physical health is tbe metabolic bal ance between nutrition and waste, between arid valuable research work has been done, showing the imitations of the eye and muscle response and the bad effects of fa tigue, alcohol and emotional distraction on our powers of observation and response. The only fault to be found with the pres ent program is its dominant concern with the avoidance of difficulties- Some degree of concern with fear Is necessary, but it is nega tive. It tcods to correct and destroy bad habits without creating good substitutes. A shift of empJasis therefore seems needed. growth aod decay, so emotional health is the The admiration of, aod confidence in, balance between our attractions and our re skilled performance might better be made pulsions in this loner world of idea. This the dominant motive. With that spirit in a elemental condition of balance is plainly healthy ascendemy we could safely develop shown by Dr. Karl Mrirooger in his recent the fact that our new skills, based on well book. "Man Against Himself." trained observation and response Instincts, Obviously, however, to produce an action or an effect, one element of the emotional will have plenty* of hazards and difficulties to overcome. balance must slightly but steadily overcome Everyone enjoys % game that challenges the other element, yet without destroying it. his best efforts. Our nation has built up a 142 29th National Safely Congress word preeminence in athletics Ly its ad' miration of coinage, its spirit ot fair pla>, its devotion to the ideals of skill by patient practice It is this type of positive emo tional attitude which our proposed experi mental work is seeking to develop. With these direct and simple emotional relation ship.1; ia mind we sltould be able to give driver training a renewed interest to both voting and old. Must Arouse Interest Athletic coaching experience shows that success in such dynamic training depends primarily upon arousing interest and devel oping morale--and secondarily on developing an instinctive grasp of certain fundamental skill factors. The pressure that powers creative be havior is emotional attraction or interest. The student must supply his own enthusiasm --skill .simply* cannot be forced upon an in different student. Athletic discipline is essentially selfdiscipline---and athletic practice, which often painful punishment, is largely selfapplied practice. Interested self practice is emotionally Impossible when the instructor stands over the student with a whip. As for road instruction, the student will find plenty' oi opportunity* lor driving a car and for this sell-practicc--if we arouse his interest, show him the craft and tactics of the game and its essential manipulative controls The point to be grasped is that the verbal presentation of an idea or fact, the mental acceptance of it and its memorizing by the student, is merely a preliminary step. The second &tep is to sell the idea or fact to him as an emotional interest and fix it in stinctively in his feelings by having him of Jw* own initiative do something to discover and develop keen observation and good tac tics. Then finally he should practice them physically with sustained interest, preferably as a driver in a car, as operator of a model car on a practice board, and also as an ob server in a car. Getting the fed of the maneuver helps to develop emotional atti tude. and constantly suggesting to himself the attitude helps to get live feel of the maneuver. The more we arouse the students' inter est in this game of driving skill, the more tactics and skill tricks they will hunt for and try out for themselves; and, on the return swing of the cycle, the more tactics and methods they discover and practice, the keener grows their interest in tive game. It is like the self starter on our cars--i wc psess the right interest button, the student's emo tional urge will supply all the driving en ergy we need . Wc should therefore point out to the student first and foremost the positive at traction of expert performance and show him the positive methods used hy the ex perts to drive better than the average. The fear of accidents, the fear of legal punish ment and of ridicule are good methods of restraint--wc need these emotional repul sion*. But we should use them to break up bad habits and restrain the recklessness ot over-adventurous drivers They do not serve to create anything; they are negative or destructive emotions. Building up an expert performance is rounded emotionally on the creative attrac tion of sltiU, on our admiration of expert performers whom wc imitate as Iverocs and champion*, and, above all, upon the creative attitude of sympathy and insight which bmkts up an intuitive knowledge of human nature. This dominance of creative sym pathy* and understanding,, which we call in sight, results in a personal magnetism, which i< the cohesive building force in all social relationships. Training in Fondaraentals A good coach takes apart his game, ana lyzes ft into what he calls the "fundamen tals." He trains an athlete in each one of these separately. Then he fits the trained pieces toftellter, like a picture puzzle, into a smooth working, unified performance. There are many possible methods of ar ticulating the elementary skills of driving, but it seems possible to start with four main divisions: Insight and anticipation; the skill of quick sense observation; instinctive judgment, and the skill of muscular execu tion or dexterity. Using the basic relationships of emotional dynamics, our experiment* have had same success in bringing into focus a number of interesting factors in all four of these fun damentals. There is not sufficient time to discuss all these factors in detail. But since more work has been done on the clement of insight and anticipation titan on the others, I will suggest the experimental approach in teaching it to the students. To cross a stream of heavy traffic means Child Education Section 143 that yyu must in part oppose what the other timers want to tie and in part accept what they want, H is vitally important, therefore, to develop a quick understanding of the feel ing* and habits of the group you are driving with. Sjmpathv aud a trksuay altitude arc vital to a happy and successful life. When WC lack it. wc are constantly surprised and irri tated by what Others do. When we have it, however, we are able lo make altonaoce* in advance tor errors that we quite understand. We understand these errors lbecause we do similar *Urpd acts ourselves. Self-knowledge of our own weaknesses is an essential part of our understanding of others. Now consider the negative side How k*?* anger weaken skill? T!c answer lies in our own common sense experience. Pos sibly. some lime in driving your car, irrita tion ba* moved you to .say. "I can't imagine what that crazy' fool was thinking ot.** You have *n>vtcrcd your own question. Dominant and over-mastering anger paralyzes your im agination; it cuts down your power to antici pate. Nenous tension, of which ill controlled anger i perhaps only one effect or symptom, has another hod effect; it narrows our field of auenuort and H stiffens our muscles. In basketball, for instance, it is vitally impor tant that a player have wide vision or wide attention. I have seen a fine basketball player taken out of the game because a rival player "got Ins goat." The Rood player's growing irritation concentrated Ins attention on the single pla>cr who was iiothcrmg him, until finally Ik watched that one man *o exclusively that he could not keep track of the other players The result of a friendly attitude in prac tice is ti>e faculty we call insight. This friendly anticipation prevents surprise, re laxes nerve tension, widen*- our attention and strengthens our ability to observe, decide and act efficiently. Anticipation can be developed by sugges tion-practice. In this we offer ourselves ra tional ideas and factual information on the idea-intake level (conscious learning level) We then digest that information by the method of suggesting its practice a* emo tionally pleasant, while steadily practicing the ct- Tbus, to understand people in the deep sense oi steady sympathy and liking, we must practice cbe general attitude of friend liness by doing many small acts of courtesy, generosity and friendliness. At the same time wc can make it* practice also develop our understanding of the peculiar habits and methods of the specialist we call an auto mobile driver. \Ve thus develop character in general by applying creative interest and sympathy to building a specific `kill oi an ticipation in driving. Techniques for Developing and Installing a Program of Safety Education By G. H. REAVIS Director of Research, Cincinnati Public Schools, Cincinnati, Ohio The fcHovsmg is a summary of Mr. ReaviV talk. Mr. Reavis described the methods used tn developing and installing a safety education program in the Cin cinnati Public Schools ; First of all. a proposed program was de fined. All available safety literature was accumulated and consulted. National safety leaders were asked for help and advice, as were also local groups both in and out of the school system. The existing accident report system was analyzed, and the data were found to agree with national norms wherever comparisons were possible. Titus,, in cases where no local statistic* were available, it was as sumed that lbe national norms would apply When the need for- various points of <atety emphari* was determined, various courses were analyzed to discover "safety spots," nr places in which safet) instruction could be incorporated. In the home eco nomics courses alone more than 200 such places were found. It was necessary to sell teachers on a phi losophy of safety anti on their individual responsibility for safety education. Teach ing outlines and published safety material: U4 29th National Safety Congress were sent 10 teachers, aiwi their reaction was requested. They were asked, in otlurr words, to help work out the course. A monthly bulletin was sent out to maletain interest and to keep the teachers informed in regard to the progress. A group of committees was organized to prepare try-out courses for various grade levels. It was found that the program could he applied from several angles: a. Class room; b School-wide organization, through student safety council and safety patrol; c. Club activities; d. Seasonal aspects; e. Periodic emphasis or drive. Although the course was organized as titorouKhly t*nd efticieuil} a possible, it was realized that improvements could be ef fected and that revisions would have to be made qq the basis of experience. Records were kept which indicated the methods and courses through which safety probaUy coaid best be taught. * On the basis of these records the safety coarse has been republished in final form. This approach to the safety course helped provide material that is: 1. Comprehensive; 2, Continuous; 3. Planned; A. Has sequence; 5. Is emphatic; 6. 1$ the outgrowth of expe rience; 8. Permits both integrated and sepa rate treatment, Teacher Liability for Pupil Injuries By FRANK W. HUBBARD Director. Research Division, National Education Association, Washington, D. C Troioeent as teachers may individually feel themselves to be of wrongful conduct toward their pupils, cases do arise In which tcaclter* are sued by pupils, or by their parents, on account of injuries sustained by pupils while under the control of their teachers. Every person has a right to freedom from bodily injury, intentionally or carelessly* caused by others; yet io every human rela- inutehip there is some possibility of injury. If the risk is great, the legal liability for possible injuries should be investigated. Teachers run two types of risk with regard to pupil injuries. First, the teacher who ues corporal punishment runs the risk of '*uit for assault and battery.* In this instance, the teacher's legal status is that of a substitute for parents, in face parentis is the legal term used, and the liability of the teacher for injuries inflicted through cor pora! punishment revolves around his status in loco parentis. The second actionable situation is alleged rif-gUgence which causes bodily injury to pupils Most frequently this type of injury occur.s on pi*} grounds, in athletics, in cbem- iral laboratories, in shop classes or in trans portation. Since the teacher's relationship with pupils is such that injuries do occur and suits are occasionally brought by pupils or parents, it is worth while for teachers to give a little thought to the legal * ditioos under lying their liability. A tortious act is a wrongful act consisting of the commission or omission of on act by one, without right, whereby another receives some injury, directly or indirectly, ki person, property, or reputation. A tort may arise out a? the following acts; (1) or act which, without lawful justification or excuse, is intended by the agent to cause Im and does cause the harm complained of; (2) an act in itself contrary to low, or tut omission of specific legal duty, which causes harm not intended b\ the person so acting cm omit ting ; (3) an act or omt&rioa causing harm which the person so acting or omitting did not intend to cause, but which might and should, with due diligence, have been fore seen and prevented. One might suggest that no teacher would intentionally injure a pupil. But the teacher who administer* corporal punishment does so intentionally; the rewslaui injury may be considered a type of tort. A teacher who does not instruct a pupil as to the method of using a dangerous tool In the shop has omitted a specific legal duty, and if harm ensues, is liable for tort through negli gence. Great weight is given in the law to the foreseeability of danger; if a danger is obvious and a reasonably prudent person could have foreseen who did not foresee or failed to prevent a foreseeable injury is liable for a tort on account of negligence. Misadventures, pore accidents n which there is no negligence, are of cour.se not Child Education Section 145 actionable. There are many occasions, how ever, where the teacher most defend himself against an accusation of negligence. The reasoning of the members of a jury is often mcomprehensibe to those who understand better all the implications of a situation. Teachers, therefore, should be forewarned that never can too much caution be taken to prevent mjories to pupils other through d&sdpltnary measures or through accidents. If teachers know exactly what Is expected of them, they can better fit into the legal scheme of affairs and avoid suits, or at least be in a more understanding position for sdf-<kfense. It is better to take precaution ary measures against accidents than it is to risk the of convincing a jury that a particular case did not involve negligence oa the part of the teacher. I. Liability for Injuries from Corporal Pmusbroeat istered with a dangerous instrument or m aa improper manner, the teacher is liable to apprehension under such laws. Penalties for the conviction of cruelty to children vary in the several states. The most severe penalty appears to be the one provided in Missouri, where the punishment is "im prisonment in the penitentiary not exceeding three years or by imprisonment in the county jail not exceeding one year or by fine not exceeding one thousand dollars or by both such fine and imprisonment-* " The third type of law bearing upon the teacher's authority consists of sanctions for moderate and reasonable punishment through the definition of assault and battery m the penal codes of nine states. Arizona, Minne sota, New York, North Dakota, Oklahoma, South Dakota, Texas, and Washington have laws almost identical with that of Montana which may be quoted as follows: "To use or attempt or offer to use force Under common law, the teacher has the legal status of a conditionally privileged parson standing tn loco parentis. The parcor ho* wider privilege than the teacher, since the latter ts limited to satuatioos which fall within his jurisdiction and responsibility as a teacher. The parent, and the teacher' in k>oo parentis, are privileged to certain con duct under certain circumstances and for or violence upon or toward the person of another is not unlawful in the following cases: ~ - . whoa committed by a parent, or an authorized agent of any parent, or by a guardian, master, or teacher, m the exercise of a lawful authority to restrain or correct his child, word, apprentice, or pupil, and the force or vfciSence used is reasonable in manner aud moderate in degree.* certain purposes. Hits privilege includes physical chastisement or other forms of pun ishment for (he purpose of enforcing reason able discipline. If a parent exceeds his privi lege, he is criminaJty liable, but if a teacher exceeds his timited privilege be may be Ruble not only criminally but also civilly by tort Common Law Principle* on Discipline .As a general rule a school teacher, so far as it may be reasonably necessary to the maintenance of the dLsriplmc and efficiency of the school, and to compel a compliance with reasonable rules and regulations, may action*. inflict corporal' punishment upon a pupil Statutes Restricting Corporal Pqnushmcnt State statutes which deal with this subject for insubordination, disobedience, or other misconduct- The infliction of corporal pun ishment by a teacher is largely within his discretion, but he must exercise sound dis are of several definite types. In the District cretion and judgment m determining the of Columbia and New jersey, corporal pun necessity for corporal punishment and the ishment is prohibited. The New Jersey law reasonableness thereof, under the varying reads' as follows; `'No person employed or circumstances of each particular case, and engaged in a school or educational institu must adopt the punishment to the nature tion, whether public or private, shall inflict of the offeme, and to the age and mental Of C2USC to be inflicted corporal pmnsshment condition and personal attributes of the of- upon a pupil attending such school or insti- {ceding pupil, using an instrument suitable tution.*0 Almost all states have laws forbidding cruelty to children (sometimes merely in cluded in provision* against cruelty to ani mals!). If corpora] punishment administered by a school teacher be excessive or admin to the purpose, and, considering the Cir cumstances and conditions of the particular offense and pupil, the punishment must not be inflicted with such force or in such manner as to cause it to be cruel or exce>~ slve or wanton or maRoous* 1 *46 29th National Safety Congress Court Cases Resulting from Corporal Punishment Foiu-ettfht ca-cs of assault and battery have been brought against teachers in the la&t hundred years according to the Kati&Hol Reporter System * Thirty-one cases were decided in favor of the teacher because oi his status m loco parentis. Seventeen cases were decided in favor of the injured pupil because the punishment had been unreason able, excessive, malicious, or given in an improper manner. Corporal punishment lias decreased in frC' quenev and in severity over the years. Many school boards forbid or restrict its appli cation. The majority of court cases were heard before 1900. However, two cases came up during tjie 1920`s (deckled in favor of the teacher), ami two verdicts have been given against the teacher since 193& In i tew of the** recent cases, the present dis cussion is pertinent. In 1933 a teacher in Vermont was fined $450 for striking an 11-year-old girl with a book. The child's kidney was injured. The court ruled that a teacher has the right to punish when necessary but if the. punishment is excessive or improper, the teacher is liable for assault ami battery. In Cite opinion given an this case, the lest for excessive punish ment nu defined as "that which would be so hekl in general judgment of reasonable men."' In 1931 a California teacher was fined SI00 in the criminal courts amd is now facing ft charge of $12,100 damages for assault and battery in the aril courts.* The penal code of California (273a) makes it an offense for a teacher to punish at all under unwar rantable circumstances or with excessive punishment under warrantable circumstances, or with excessive punishment under war rantable circumstances. The test of reason ableness applies both to the punishment in the first instance and to the Question of degree.. Permanent injury or disfigurement was held not to be the test of unlawfulness of punishment. II. Bodily Injury Caused by Alleged Negligence of Teachers Frequently a pupil Is injured while under the supervision of a teacher, and occasionally the teacher is at fault Accidents occur most frequently in transportation of pupils and on the playground or in sports. Some accidents also occur in shop classes ami chemical labo ratories. The extent to which the teacher m charge, or the driver of the school bus iu the case of transportation accidents, is liable for the injuries sustained by pupils is a question legally answerable only through application of the principles of negligence. For example, a pupil who fell and cut hcr*elf on a glass flower bowl which the teacher had told her to fill with water could not hold the teacher liable for negligence. This injury was purely accidental; no negli gence was involved, and the teacher was not legally liable.* Conduct, however reasonable, frequently creates a risk for someone, hut. conduct is not negligent unless tire risk in volved is unreasonably great. Some injuruiti* consequences must not only be possible Imt also probable. What Is Negligence? Xcglipertce is any conduct which falls below the standard established by law for the protection of others against unreasonable risk of'harm. In general, such conduct mav be oi two types: 0) an act which a reason able man would have realized involved au unreasonable risk of Injury* to others, and (2) failure to do an act which is necessary for the protection or assistance of another and which the actor is tinder a duty to 4i>. When la Negligent Conduct Actionable? Liability for negligent conduct is condi tioned upon two considerations: the char acter of the conduct and the nature of the results. The amount of caution required is proportioned to the amount of threatened or apparent danger. Risk may be legally unreasonable where the seriousness of the possible harm is great even though the chance of actual materializing into liarm may seem comparatively slight. On the other hand, if a harm sustained is different from what might have been foreseen, the conduct causing the harm is not negligent. Test of Foreseeability The first test for determining the liabil ity of an actor causing injury to others is the test of foreseeability. When a reason ably prudent person could have foreseen the harmful consequences of his act, the actor in disregarding the foreseeable consequence# is liable for negligent conduct It is the exposure of persons to unreasonable risks which characterizes negligent conduct, and the test of reasonableness of the danger and the care and caution necessary u> avoid it is what would be considered reasonable Child hducatum Section 147 by an ordinary reasonably prudent man. When a person i* doing an> thing iu which an individual of ordinary prudence can fore see danger of harms to others, the law im poses a duty upon him to employ reasonable care. If the damage is d-ooc by a deliberate and independent, though innocent, act of a human being, tile defendeut's prior and ante cedent negligence will be live legal cause if the intervening human agency was foresee able. This principle is sometimes applied to situations in which the harm is immediately caused by acts of children not negligent on their part by reason of their years, al though the acts might Have been negligent if done by adults. Contributory Negligence Obviously, these generalizations bring up the point of contributory negligence, which is defined m law as conduct on the part of the injured person vthich falls below the standard to which he sliouW conform for his own protection and which is a legally contributing cause, cooperating with the negligence of the dcfcadent in bringing about the plaintiff's harm. Reasonable self-protectkm is to be ex pected of aU sane adults. With some few exceptions, contributory' negligence bars re covery against the defendant whose negligent conduct would otherwise make him liable to the plaintiff for the harm sustained by* bun. Both parties being in fault, neither can recorer from the other for resulting harm When there is mutual wrong and negligence on both sides, the law will not attempt to apportion the wrong between them. Extent of Liability The far-reaching implications of liability tor negligent conduct may be seen from the following abstracted outline from rules in the law of torts.* If the actor's negli gent conduct lias resulted in any injury to another so as to create a right of action, he may also be Bable: (a) For physical harm resulting from fright or shock or other similar and immediate emotional disturbances caused by the injury or the negligent conduct causing it (bj For additional bodily harm resulting from acts done by third persons in rendering aid irrespective of whether uch acts are done ha a proper or negligent manner (c) For any disease which is contracted because of lowered vitality* resulting from the injury caused by the actor's negligent conduct (d) For harm sustained in a subsequent accident which would not have oc curred had the person's bodily effi ciency not beet Impaired by the ac tor's negligence. Furthermore, a person may be liable for injuries resulting from his conduct, where the prior physical condition of the plaintiff is unknown. Several examples of this rule may be found ia the cases dealing with sports where the physical education in structors were found liable for injuries sus tained by pupils who had some physical defect unknown, to die instructor. Specific application of the principles of negligence may be studied in greater detail by examination of typical court cases iuvoh hug suits brought by pupils against teachers for injuries allegedly caused by the teach* er's or bus driver's negligence, III. The Scboolboard's Responsibility . for Injuries to Pupils Every individual is responsible for fits own torts 5m ordinarily, in law, the principal or employer is also responsible for the in juries caused by fats agents, servants, or employees. This legal principle is called respondeat superior. However, the teacher, though an employee of the schoolboard, is under contract for the purpose of giving instruction and has therefore the legal status of a quasi-independent contractor, not that of an agent or servant. Immunity of School Districts Oner, may ask why the common law ruling against holding quasi-public corporations liable for their torts. The basis lies in the common law reasoning during the middle ages In England; first, the king can do no wrong; second, the state represents the king and therefore can do no wrong. Bring infallible, the state canubt be sued without its consent. The state is therefore immune from legal suit The school district is a division of the government, an arm or agency of the state. The school district i* therefore immune to tort action especial!) since education is a governmental function of the school district.** There arc hundreds of court cases which uphold this theory. In addition, other reasvn* have been given in court opinions for the 148 Z9tii National Safety Congress nonliability of school districts: school dis tricts are acting nolens voienOts; they re ceive no profit or advantage from the per formance of their delegated duties; they have limited powers, only those powers which have been given them explicitly, and the permission to commit a tort has cot been granted them; they are authorized to collect taxes for educational purposes only, not to pay damages; furthermore, school property is exempt from attachment to pay damage claims. On the other hand, there seems to be *oi<e theoretical trend toward the abolition ot the theory of nonliability. A Bomber of court opinions ar>d legal authorities ia their treatises have admitted the injustice of the common law theory, as may be evidenced by the following quotation: "If the doctrine of state immunity ia tort survives by virtue of antiquity alone, is an historical anachronism, manifests an ineffi cient public policy, and works injustice to everybody concerned, the legislature should abrogate it. But the legislature roust make t1>c clwiige in policy, not the courts.'*" Statutory Imposition of Responsibility In X<v. Jersey and New* York only have the iourts allowed injured pupils to recover damages irom school districts m the ab sence of Statutory imp-otitioa of liability. Sever.*! cases in New York were decided ki favor of the plaintiff before the statute of 1957 which definitely placed tile Habiiky upon the board of education. Mew Jersey in 1937 passed a law permit ting .school boards to pay the legal expenses of teadters when sort Is brought agaarntt the readier for damages to pupils. In 1958 New Terse) passed another law which is prac tically identical with the New York law. Tlie situation m these two states, however, is unusual and the general philosophy I* contrary* Several other states have ap proached the question of district- liability irom a different angle; that Is, the state legislatures have, more or less successfully, fixed responsibility upon the school boards for injuries arising cut of their negligence. These slates are California, Minnesota, Oregon, and Washington. The statutes In California and Washington have served as obviously intended, bat In Minnesota and Oregon similar statutes have been Interpre ted by the courts in such a way as to nullify their purposes. The recent laws in New Jersey and New York make definite the school district's lia bility; the permissive laws in California and Washington are reasonably' definite. The permissive laws in Minnesota and Ore gon have been misinterpreted so as to nullify them and cause the height of con fusion. In the other states there is less or no confusion because there have been no permissive lews calHug for judicial interpre tation. In four states--Alabama, Arkansas, Till nmt, and West Virginia--the state constitu tions prohibit saks agamst the states (and school districts, bring considered arms of the states, thereby come under the same prohibition). Although 21 state constitu tions*1 authorise salts, in roost instances they are expressly Kmited to suits on account of breach of contracts. In other instances the permission is stated in such broad terms that it has always been interpreted to ex clude tqct action?. Implied Acceptance of Liability for Pupil Transportation In several states school districts have been authorized to purchase insurance covering pttpU transportation accidents. This type of taw may amply jraperotron on the state (or its subdivision) of a limited degree of inability. However, Wyoming and Colorado, white authorizing Insurance for transporta tion, have at the same time specifically denied that such insurance shall be "con strued as creating any liability against the school district...." A few quotations from the various state laws will illustrate the type of authoriza tion.. The 1935 Colorado statute quoted be low Is identical with the 1933 law in Wy oming. w "The district board of any school district in the state of Colorado operating and main taining transportation route or routes under the statutes of this state is hereby authorized to procure liability usd property damage in surance covering buses used on such routes for the txaasportatioo of school children; the premiums thereon are to be paid out of the funds of such district, but only ia cases where the school district itself owns or rents such buses, otherwise to be paid by the contracting operator of such buses; pro vided, that there shall be no right of cocttributiotL on the part of the school district to the Insurance carrier; provided, however. Child Education Section 149 that nothing contained in this section shall be construed as creating or intending to create a liability against the school district so insuring said buses except in such amount as is covered by an existing and valid policy of insurance; provided, further, that failure to procure such Insurance shall not be construed as creating any liability against the school district by reason of any injury or damage to the property of others, occurring in the operation of any such bus or buses/"3 Liability for Safety Patrols The practice of assigning pupils to safety patrol service m order to safeguard the other children going to and from school has opened up an entirely new field of possible hazards. No state statute, authorizing the safety patrols, has imposed on the schoolboard or the municipality any liability for accidents to pupil patrolmen. On the con trary, In four slates the law asserts the non liability, not only of the school district but also of its employees. Minnesota makes definite and dear that no liability attaches to the following: " . . the school, educational institution, governing board, directing authority, or any Individual director, trustee, superintendent, principal, teacher, or other school authority by virtue of the organization, mamtcnance or operation of socb a school patrol be cause of Injuries sustained by any pupil, tekethrr & member of the patrol or othervase by reason of the operation and mainte nance thereof."** The question may be raised as to whether or not a school patrol Is an integral part of the school program. New Jersey recog nizes tiie patrol Idea as follows: "Any organization of pupils whether des ignated as a patrol, council, court, dub, committee, or school police which has for Its purpose the prevention ol accidents to paphs in the school building, on the school grounds, on a sidewalk or path adjacent to a street, road or highway, or in a school bus or other vehicle approved for the trans portation of pupils shall be regarded as am essential part of the school program and as a method of safety instruction and shall be employed and administered as such by the school personnel.''** Although several states have thus spe cifically declared their nonliability for aeri*)mr in connection with safety patrols, cither by statute or by legal opinion, the likelihood of accidents has been minimized by adoption of the Standard Units for the Operation of School Softly PatrolsTM For example. Pennsylvania has included in the statutory* authorization of safety patrols a prohibition against the directing of vehicular traffic by student patrolmen, "nor shall any safety patrol member be stationed In that portion of the highway intended tor the use of vehicular traffic "1* These precautions are effective ut reducing the hazards but the question of liability in most states remains as yet unanswered. IV. Liability Insurance Protection As a result of the fcejjog that common law immunity of schoedboards often work* a hardship in individual cases, there has de veloped a movement to require sehoolboard* to purchase msumnee. The purpose of these plans is to reimburse parents of pupils for hospital and medical cost arising from acci doits at school, thereby insuring children proper care and removing undue demand* upon family incomes. In New York and New Jersey, board* of education non are required by law to have msutance.* But in some other state* the right (o purchase insurance has betn dented by competent legal authority uoiUr the theory that school revenues cannot U used for this purpose. For a school district to provide such Insurance would be to ftnpj; that the state or one of Its agencies could be sued which, as shown previously, 'is contrary to common law and ha* nor been abrogated fry statute In* a majority of the states. . Colorado. Florida, Minnesota. Vcrnwmt. West Virginia, Wisconsin, and Wyoming empower local boards of education to pur chase liability Insurance covering pupil transportation. North Carolina has taken care of the situation through a budgetary item rather than through insurance. Teanesisee and Alabama have law-* pernutting other types of insurance which the courts have interpreted as to Include liabil ity insurance.** ' Unauthorized Insurance Contracts In states where no statute confer* upvt> schoolboards the right to contract for in surance, a sehoolboard which move* to take Insurance is subject to grave difficult^ Court decisions have followed two tedir>K cases in this respect. In both cases, school- 150 29lh National Safety Congress Joartis had. without statutory authority, provided for group life insurance. In New York the court ruled that the city had no authority to enter into a con tract insuring its employees "for tbeir own 'benefit.*'3 This case has been cited and followed in a number of subsequent cases. The second leading case was decided in \Q2i also but the decision was contrary to this New York case. In New Mexico* it v. as held that the schooiboard lias the right t` carry group insurance for school teach ers and employees under statutory author ity -ho defray all expenses connected with tlw* proper conduct of the public schools." Insurance for Driver Trainmg \ sptctal problem regarding liability has rtri-ot in connection with school driver-train?ns? programs, Agencies which cooperate in nfroishtUK' automobiles for school use usualh insist that msurancc be carried on these juu imolales In states where schools are nor authorised to purchase Insurance, the cottcral procedure has been to have the insurance premiums on training cars paid by the local automobile dob or dealer, or h\ some other cooperating party. In states where boards have apparently assumed Ha- !it\ 5or transportation accidents* the statupermission to take insurance on vehicles ti-cd sn iransportaikm may possibly be con -trued -o as to permit insurance on drivertruittin# u>r* V< licte* taken on school fleets have 1eu oiulorsed to cover driver-tratniog cars; in 'tber case* separate policies have been taken *u the cars used in road instruction. In the tour states where general liability lias Seen imposed, school boards are required to *ake general liability insurance and may take polkics on the automobiles used "in their program. Limitations of Insurance Taken by School Boards General insurance principles bold that, if <* policy is endorsed with an agreement not ,<t use a defense ordinarily open to the insurer, such defense cannot then be used. \ppiying this general principle to the sub ject under consideration, it may be inferred that (]>e school board taking out insurance should have the company agree in writing on the policy not to defend from claims thereon with the defense that the school board had no right to take the policy, hav ing no liability and therefore no loss against which to indemnify This endorsement plan has worked successfully in some instances. It has not served to solve the problem, as for example in the case of Hughes v. Hart ford Accident and Indemnity Company* where die policy contained the endorsement. However, a clause of the policy reads as follows: "No action shall lie against the company until the amount of the damages for which the assured is liable by reason of any casualty covered by this policy is determined, either by final judgment against the as sured, or by agreement between the assured and the person or corporation making the claim." This situation arose: The school board could not be sued, and therefore no jodgroent could be obtained by the injured party against the school board. The insurance company would pay no claim without such judgment The injured party could and did suer the insurance company, which de fended on the grounds that the schoolboard was a governmental agency and no agree* nent had been made nec to use this defense against any third party (only against the school board). In a similar situation, when an insurance company used this defense in \Yct Virginia, the court ordered it to refund the premiums accepted or stand the amount of the judg ment* since the premium is the essence of the insurance contract. Limitations of Insurance Taken by Individual Teacher Although pupil injuries occur most fre quently hi transportation, and several slates have permitted or required insurance on school buses to reimburse the injured pupil for his financial loss, there remains the large number of states in which no such insurance is allowed, and excluded also is the class of injuries not covered by insurance when al lowed hut restricted to transportation acci dents. Since school districts outside New York and New Jersey, possibly California and Washington, cannot protect their teachers from damage suits on account of negligence, inquiry has been made into insurance poli cies individually available to teachers. It was learned that such risks are insurable provided the assured is willing to pay a premium set by insurance companies to com pensate them for the risks they assume. Child Education Section 151 For example, physical education teachers must pay a higher premium than academic classroom teachers, and where such insur ance is taken on a group basis most com panies require in the group a proportion of at least four other teachers for every phys ical education teacher. In order to set a premium within reach of the average school teacher, most insur ance companies insert into their policies one or more exemptions. If the tocher tak ing out such a policy is not alert, it is pos sible that the protection sought its entirely nullified by die operation of these exemp tions. For example, most policies exempt payment If the insured fails to give first aid to the injured, or if he gives first aid improperly. Some policies cover only acci dents caused "by reason of the performance for the schools, described in the application, oi lu5 or her duties as described." The fol lowing exceptions are listed io another pol io * *"ia) Caused by the assured's willful, de liberate and/or malicious acta; or **(b) Caused by the rendering of or omis sion to render professional services except a* an instructor; or ` (c) Caused by or arising out of or re Suiting from corporal punishment; or "(d) Caused by vehicle* owned, operated, rented, hired or in the care or enstody of the assured-** AU injuries caused b> corporal punish nveiu arc excluded under (c). AH transpo-rtation accidcnia arc excluded tinder (d), as such accidents are insurable through an other type ot insurance, i e., automobile Uab*lm and property damage policies. Ex ception (id probably would exempt the instructor from all protection in extracurriailuin activities. The exception that may be live most troublesome is (a), since partically anything which the teacher might do. wluch would develop as the cause of a pupil accident, might be argued by an insurance attorney as a willful and deliberate act. In view of the prohibitions and the dan gers set forth in this section, teachers who attempt to protect themselves by an indiwdual liability insurance should do well to seek the advice of the stale insurance com mission before taking any policy. KCTTJtEXCES * Disciplinary pcoh&ems have earned roanv type* ef court Only there dealing with corporal |.iSr-i-hnm coinc under lb cla*sic.atiuiii t av *au{c amcl hatrery Suspension or c*puU is cun actionable in tort unless tome pecuniary lou baa been felt by (be pupil or parent. In cate of un lawful expulsi*, (he proper procedure Is mania* rout to campel reinstatement. * Rrviifd Statutes of Nrm Jersey X9J7. Vet. 1. Title 10, Chapter 19, Article t. * Missouri Statutes Annotated- (1932) VoJ. 4, Chapter 30. Section 4025. * Revised Codes of ifontea* 1935. Annotated. Voi. s. Chapter 29. Section 10990. * Corpus Juris 56: 1011. 1100. 4 The Notional f?r)#rtrr System la a series of re port* on stale case* of appellate courts. Published by the West Publishing Co, Chicago, 111. Itoued by ceograpWeal region* ot the United State*. t.Vfr/e* v. MeLouoktin 176 A 297 (1935). People v. Curtiss 200 P SCI (1931). Gaimcett Davis. 275 N. W- 22% (Mh. 1937). * American Law Institute Restatement of the Lear of Teels, Vel If: **tteg&seacc,'* Cboji. Id, Topic 2, p. 1209-23 St. Paul, Mimvt American Law fnstitwt* Publishers, 1934. 11 Tbit imnunHy from liability of school =hsw agencies of (be state, has been carried mi far (bat In Iowa employee* of the school dis trict* bare Wen considered immune a* individuals. Tbe Imhnc care for this theory f HtfA* v. Indc pendent School District of Green Mt. ct al. 251 X. W. 60$ (1933) 255 K. W. 493 (1934). This t* the inly case of it* kind. The ophtion siren 1* (hat "exemption of school cWtricr from liability for damaxr* tetulung from neclircncc In perform ing C9vernnentaj function* apphe* to officer* and employees thereof. When acting in in twrrly eorcrorscnial capacity. HMnnictpahuc* are nr>t liable m dazaajtes resulting: from i&ccKgcnce (he t*n of t\ cSficfU, servants, and ajrcrrta. Ho reason wrtthj. however, seem to exist for - . - dear the *ama to an employee of a school corporation when finilar!r engaged." Hewercr, the state supreme court has recently overruled this drci*Mt M Borchard, Edwin M. Ameriean Bar Asteeirtion Joumot 11:495; Atufmtc 1*3 *5 uArirona. Call>Vmla. Delaware. 1 fn-'Ls. Idaho. Indiana. Kentucky. Louisiana. Netrk* Ncrsl*. North Catalina, North Dakota, Ohio, (trceon. Pena?;- iraufa. South Carolina. South Dakota Trn nessee. W'ashlnpton. Wisconsin. arv WjofPitMt ** Settlement to tV'tomlng Rexised Statutes N.ti Atvnouied. Chapter 99, Article S, Sections 99-928 ** WJ Cv'erada Statures Annotated. Vnlrntr J- Chapter 11$, Sectien 117.. w Mason's Jfinsteseio Statutes J927. Vol. 3, I9JS Supplement Ch. 14, Scctioct* 3t3M5 fItalics ours.) n Sekoiti Lots si .Vne Jersey, S9SS. Parasratb 4?. p 2)t. ufopies of these rules may be obtained from the American Auiomotyle Association, VVativinff ton, D. C- or from the National Safety Council, Chtcaen, Uhnoi*. * RufJan's Pennsylvania Statutes- 193d Title 3*8. * Thompson's Lines of New York (1939i Pan I. Chapter Id, Article 20. Section 569 a. 92 S\V (2d) 414. 134 S 461 fAla. 1011 (. " People ex rei Terbush and Peeve} c. Ihkkle 189 N.V.S, 29 (N.Y. 1921). * S'shJ v Heard of Education 199 P 37). t. ALR 1085 (N.1L 1921). 134 So. 461 (Ala. 1931). * Adkins V Western and Sonthe** CaMfmiv 196 SE 302 fW.Vn. IM#. 152 29th National Safety Congress WEDNESDAY LUNCHEON SESSION October 9, 2940 Presiding, J. Andrew Hou^v, Head, Department of Teacher Education, School of Commerce, A and M College, Stillwater, Okla. The business meeting or the Child Educa tion Section was held Wednesday noon, Oc tober 9, at the Stevens Hotel The Nominating Committee recommended that the incumbent officers be reelected unanimously. This was placet! in the form ot a motion, and the motion wa* carried. The group discussed the need of a per sonalized, flexible medium for the exchange of ideas in the Child Education Section, and the possibility of poMashnag a monthly news letter was considered. WEDNESDAY AFTERNOON SESSION October 9,1940 INFORMAL CONFERENCES Problem* in Teacher Education for Safety Presiding, J. Andrew Hou.ey, Head, Department of Teacher Education, School of Commerce; A and M College, Stillwater, Okla. Problems of Teacher Education and Safety By CARLETON WASHBURNE .. Superintendent of Schools, Wimictka, 111.; President, Progretv* Education Association Educating teachers for safety is a part of the broad problem of selecting and educating teachers for children. The. teacher who is the kind of person needed for the whole job of education is one who has insight into the needs of society and the needs of children, who has skill in meeting these needs, and who has a philosophy of life In which rela tive values have their right mterordination. Such a teacher inevitably does effective work in safety* education; so let as consider the broad problem of teacher education and only incidentally the more specific problem of safety education. First, we must select the right type of person for the teaching profession. The de creasing birth rate is fortunately making the number of applicants for our teachers colleges far in excess of the demand for teachers. This is enabling teachers colleges to be much more selective than they were in the past The schools of education in our univer sities, however, are not yet clearly facing the problem of selection m terms of limit ing numbers of students to fit the needs of schools. Any good student m a university whose grades are fairly high can take edu cational courses and become certified for teaching. Then the selection devolves upon the school administrators. This may be ef fective, but is sometimes wasteful, and hard on the student who has invested time, money, and effort preparing to be a teacher. Whether the selection is made by the training institution or by the administrator, ne should see that those entering the pro fession have the fundamentals necessary for effective teaching--that they are healthy physically, that they have well-adjusted. Child Education Section 153 emotionally stable personalities, that they have reasonably nigh intelligence, that they have marked sensitivity, especially in the field of human relations, and that they have a broad social outlook. Haring selected good material for our future teachers, we must see that their pre service education is not narrowly special tzed. Each teacher must be developed in two inter-related fields--the study of society* and the study of children. The study of society must not be primarily bookish but should be based upon real ex perience. In the past we have relied upon reading history textbooks, possibly textbooks in economics, political science, and sociology, textbooks of literature, and so on, and listen ing to lectures on these subjects. This sort of bookish education tends to give students merely the dry* bones rather chain the living realities, and frequently *t leaves them quite unaware of the problems of today and of the emotional surges that are affecting human behavior. Even the facts of economic, po litical, and social life are not learned in con nection h itli real human beings but as doubly dipiilWd and lifeless symbols. Direct Experience New College at Teachers College, Colum bia University' led the way toward a more realistic approach. It sent students out into factories and onto farms and had them do actual work among workers. Bennington College, through its long winter recess, en courages its students to take part in the economic and social life of the world today. Antioch ColJcyc. through its cooperative plan, puts students Into jobs alternating with their studies. The Chicago Tearhcr* College card* its students on innumerable trips to factories, housing projects, commercial houses, slmns and art centers. All of these arc steps in the direction which we must take if our teachers are to be living men among the living. They roust see first Itand the lives and problems of the human beings whose children they are going to teach, and must, a* far as possible, participate first baud in these lives. On such a foundation of direct experi ence the)* can extend their insight into soci ety through pictures, motion pictures, and exhibits. Thai, and then only, they can build on this sure foundation through (lie use of the svmboH of speech and the printed word. Surely the vicarious experiences provided by lectures, discussions, and reading are essen tial, but they have meaning only in so far as the symbols represent realities. With this kind of background, and simul taneously with achieving it, prospective teach ers must study the needs and problems of society. Among these, of course, will be the needs and problems of safety. One cannot study the labor movement without seeing the drive that organized labor has made toward safer conditions of working, and the industrial conditions that hat? led to this drive, and the distance we have yet to go if human life is not to be sacrificed to carelessness or greed. One can not study housing problems without again coming upon the necessity for safety and tin: problems involved in achieving it, And so on through the various problem* of family life, personal and social relation ships, family, cotBrntauty, and world econ omy and political organization. In each of these fields the teachers should become aware of the problems that exist and hould be set toward the attempt to solve these problems. It Is not a part of the job of teacher edu cation to hand out ready-made solutions any more than it is the problem of education itself to do so. The important thing is to* awaken people to the awareness of the prob lems and to Instill m them a high resolve to seek solutions. Safety is only one of many aspects of the various problems fiat will be attacked. We must be careful In our awareness of the need for safety education not to make it a disproportionate-part of the curriculum, but rather to see it as one thread woven through the whole fabric of the study of the need* of society, a factor not to be neglected, hut a factor not to be distorted by overempha sis. hfttst Study Child Concurrently with the study of sockt. there must be a study of the child, hi* need* and hi* development. This again mu*! b*? based upon real experience with real chil dren. In the old San Francisco State Teach ers College Frederic Burk saw to it that every student from tht end of the thirtcemh week of school to the time of graduation was every day in contact with actual chil dren, having responsibility for tlicse chil dren, and thinking In terms not of children, in the abstract, but of John ami Henry and 154 29th National Safety Congress Msuy. in most places, however, practice "teaching has tended to be a semester or so of isolated experience, comparatively un related to the rest of the student's course in the teachers.college or university. It should 1* a foundation for a large part of the stu dent's work; it should be the center around which discussions and study are integrated. Tine direct experience with living children i-hould be expanded through pictures of children under different conditions through discus-stems, and through reading. But again the learning through symbols cannot take place until the symbols have achieved mean ing through real and direct experience. The analysis of needs and problems of children will include their physical need*. 1k>w the physical organism develops and vdsat it must have for* its best development. Safeit will definitely play its part here, the rciy that comes with achieving skill to meet situations in which one is likely to had onv?li--not a passive safety of avoiding all lutzanK hot an active safety of recognizing luward* anti k-arnira; 1. m- to cope with them "uccc-rfullv. The need for developing coordination, for developing healthy bodies, for action rather than passivity--all such needs will come out st one *mdie> the child; and teaming liow to imcvi them will be a necessary part oi teacher *.ducatMn. Thv-n there are the emotional need* of the child, the needs for self'Expression, security, and -<.cial integration. The person who docs not fully understand childhood and who is uvi-j conscious of safety is liable to fall into the error of overcaution. Tlte child whose expression is constantly retrained by cautions ai>d prohibitions, in stead of achieving skill and a saipe attitude toward hazards is liable to break loose and be reckless if for no other reason than to get revenge cm those who have constantly thwarted him. _ Avoid False Security The child's security must not be based on a feeling that no dangers exist or that He can avoid all danger. Children crave the feeling of risk, as witness their vicarious thrill? through the dime novel of the old days, the movie and radio and even comic strip adventure of today--trashy, many of them, yes, but popular because they answer the child's need for a feeling of hazard. Security does not come from depriving chil dren of the sense of danger and the adven ture of coming dose to it, but rather from developing skill and understanding. This is far from all that there is to secur ity from a mental hygiene standpoint A child must feel loved and must feel that be belongs m the family and in the community, but safety education may contribute its small quota to the sense of security if the safety education Is wise. The teacher, in studying the emotional needs of the child, must also see that he has opportunities for social integration wbkh comes from cooperative purposing, from working side by side with hts fellows toward a common end. Extended, this becomes training in citizenship. In addition to studying and meeting the child's physical and ooottoaal needs the teacher needs to learn to meet hts intel lectual needs. He must liave the skill* neces sary to coordinate his work and play with those* of hw fellows. Hence the necessity for reading, writing and arithmetic. Hence the necessity for a certain common basis of knowledge. The teacher not only wishes to affect be havior, but wishes to see that behavior is intelligent. Therefore she helps children to under?iami the why* of what they team. An understanding of the why$ of safety be havior is a part, evert though a small part, of meeting children's intellectual needs. Then, children have social needs. I have already mentioned tbetc in connection with their emotional need*, beeaufc they are no closely tied together. The child needs emo tionally to feel himself to be a part of the family, the school, the community. And from the standpoint of the well-bang of society, he must be able to extend his social con sciousness to the state, the nation, and the world at large. VVhai I said*earlier in regard to giving a teacher social understanding through direct experience, followed by dis cussion and reading, applies equally to chil dren. They must see the needs of society anti must resolve mightily to do their part in meeting these needs. Right here, much of the factual material which is included in safety education has its rightful place. The frequency of accidents and the causes of them are vivid examples of certain genuine social needs. The teacher in studying the child and helping him to be come a socially conscious individual who Child Education Section 155 feel- ropon.tibtltly for helping society to meet its needs will necessarily bring these facts before the children, first through di rect experience right in the school, on the playground, and through cooperation with the parents in the home, and then through a broader analysis of the community and the larger world. Pre-Service Education When one discusses pre-service education at teachers one inevitably covers the main factors of in-servicc education. The super intendent. principal, supervisor, or other specialist in the school system is there pri marily to help teachers do the most effec tive job of which they are capable. He is tlwretore engaged in the process of teacher education just as touch as--and sometimes much more than--the faculty members in a teaef'er*training institution. Theirs is an ever-caiifirwiing follow-through of pre-ervirc education. Tlierc is danger that teachers immured tttthtn the schoofhousc will lose contact with *ocietj. People who are concerned with the development of teachers must see that they arc brought into continual contact with the crmienonity. encouraged to take part in com munity activities, encouraged to concern thcxn-elses with the broader political, ecorHnic. and social italics of community, state, nation, and world. Continual stimulus and vncuuraqcmcnt must be given it teachers are not co flip into the rut of importing sterile knawtedjee to docile children. \t the* amc time that the teachers are stimulated toward active membership to socictv and continuous recognition of social problem*, tlwy must also be encouraged to carry on their study of childhood. In the traditional school the teacher was not so much concerned with studying what children needed, studying their development and how it could best be fostered, as he was vrith imparting Information and drilling in skills. The child was the plastic clay which the teacher moldetL Fortunately children are not plastic clay. They are vital human beings, each with his own determination to be more fully himself. The teacher's job is not to force* feed these individuals, but to study tlvem and supply their personal and sodal needs as those needs become manifest. And the job of the administrative and supervisory' force is to help teachers to be aware of their basic re sponsibility' in the ftudy of society and the study of children and in the developing of children toward self-fulfillment as partici pating members in a democratic society. Throughout the pre-service and in-service education of teachers, and throughout their work with children, tltcre must run a philos ophy of life, a recognition of which %-alttes are of greatest importance and which values are to be subordinated to them. As the teacher develops his own phllosophy o{ life in terms of self-fulfillment and id terms of social participation toward the fulfillment of all other human beings, and a& the teacher sees with increasing clearness where the subordinate values fit into the general scheme of life, she will inevitably and often unconsciously influence children toward a similar orientation. A teacher with confused values confuses children. A teacher with a clear recognition of values hdps children toward a similar clarity at every point of contact'--the teacher's voice, maimer, adjustment of minor problems, method of handling any activity or meeting any situation, all are unconscious reflections of that teacher's, seme of values, of ber philosophy of life. Far more important titan any direct instruction that the teacher may give ts the unconscious example set by her own life. I stress the unconscious influence of the teacher because it probably is by far the greatest. Bur there i* a place, too, for con scions analysis. Just as the teacher in organ izing her own values and her own philosophy must go through a process of constant anal ysis of what things are most important and what things are less important, what things contribute to long range satisfaction and to social well-being and what tilings obstruct these fulfillments, so, too, must she help the children consciously to analyze their prob lems; consciously to subordinate the lesser lo the greater values, the momentary impulses to the long-run satisfaction, the seeming good of the individual to fhc more inclusive good of society. Philosophy of Safety And it is in the light of this kind of philosophy of living that safety education must be taught If It is to have meaning. The person with an adequate philosophy of life docs not avoid all risks. In fact, if he Is worth his salt, he lakes many risks, but be take* tltem consciously to achieve purposes 156 29th National Safety Congress worthy of the risks. He prepares himself as adequately as possible for h*$ undertakings. He faces realistically all the factors of a situation and acts with judgment. Only so can he prevent carelessness, lack of fore sight, and lack of skill from interfering with his major ends. Safety education as a con crete example, as an illustration of the way to meet various life situations in terms of wise adaptation of means to ultimate ends, can be a fundamental part of education as a whole, of the eIf-falfttlnMt of each indi vidual as a participating member of a demo cratic society. Discussion The informal discussion which followed Mr. Washbume's address was led by mem bers of the Child Education Section's Com mittee on Teacher Education, -including: Da HE#jc*r J. Stack; Director, Center for Safety Education, Hew York Univer sity, New York Gty, chairman.. Dr, Vivian Weeoon; Curriculum Con sultant, National Safety Council, Chicago, Secretary. Da. George Ansels*, Director of Teacher Training, Woman's College of the Uni versity of North Carolina, Greensboro, N. C Kenjo-th N- Be*dl. Director, Education Division, National Conservation Bureau, 60 John St., New York Gty. Dt Waujo Ltsswan. Dean, College of Education, Wayne University, Detroit, Mkft. Da Awe* E. Neymast, Administrative Head, Institute of Public Safety, Pennsyl vania State College, State College, Pa.; Road Training Consultant, American Automobile Association. Djl F. R. NoFFSfNGEJt, Educational Con sultant, American Automobile Association, Washington, D. C. The discussion w? opened with the ques tion, "Sltould a specific course in safety education be organized for teachers?" A compromise view on this question evolved: That, because of the lack of under standing and appreciation of the needs and possibilities for teaching safety through the materials and activities of other courses, a separate coarse io safety should be organ ized. This ought he considered a first step or stage toward twore complete integration of safety with other courses and depart ments. The importance of having teachers get some first-hand experience In safety was stressed. The necessity of getting teachers inspired to meet the new responsibility in safety education was also pointed out. The desirability of integrating safety m special departments, such a& Industrial arts, home economics, and physical education, was brought out It was stated that safety might well be the center or core around which other con cepts and skills might be developed--that the chief reason why safety Is not a sepa rate course now when considered In rela tionship to the importance of other courses i> (hat the latter courses are older. School Safety Patrols In Secondary Schools Presiding, Mas- Wiruuaf A. Hastikcs, V3ce-Presidot, National Congress of Parents aod Teachers, Madison, Wis. Viewpoints on the Education Value of School Safety Patrols By A, R- I.AUER Associate Professor of Psychology, Iowa State College, Ames, Iowa In a discussion of school safety patrols at implications tmderiytng the problem; the litleast three approaches might be made. It crature might be reviewed to bring out the would be possible to discuss the theoretical practices which have been more cm* less Child Education Section 157 crystallized m the past; and it might: be worth while to make a brief survey of cur rent thought regarding the problem. As a result of the third coosidemtioa, two groups of persons were approached aod asked to react to a sheet of questions rdatmg to school patrols and were asked to give other evaluations which might occur to them. These groups were: 1. Authorities iu the field of safety edu cation. 2. Administrators who are fating the problem. This report wilt center about each of these possibilities, with a final evaluation based oo the outstaodlog points of each. As In the case of most issues, there are cer tain to be schools -which think the patrol Is the only thing. Likewise, there win be those who are very much opposed to the patrol and those who are indifferent. The present evaluation w>H essentially consist of examination of the basic premise and the assumption laid down. A final solu tion must await further experience with patrols, experiments set up to detenmme the change In attitudes of the patrol, as well as of school children b general; and the effect upon teachers as well as motorists. It does not follow that because one dose of medicine is good, two doses are better. Perhaps a tamversa! adoption of a school safety patrol would be detrimental, whole h*cH chosen locations might profit a great deal from the patrol. Theoretical Considerations The following assumptions or postulates are made regarding the school safety patrol, most of which are tenable in most respects: I That human life should be placed at the top of values assigned to the various socio bio-physical relationships. Z That public education is beneficial. 3. That qualified and systematic direction of behavior brings the moat satisfactory re* salts In educational progress. 4 That supervision of school children will help mold tbdr habits. 5 That older children respect the wishes of younger ones, particularly when it is made a part of their duty to do so. 6 That younger children took up to older hoys aod girls for pointers on which to fashion their behavior. 7. That human judgment increases with age and training. ft. That certain tasks can be performed as well by the intellectual immature as well as by intellectually mat * individuals. 9 That attitudes and uvooght habits can best be estabisbed on a rational basis. 10. That adults respect the authority of children in situations of material interest. 11. That education is best accomplished by a functional approach. 12. That leadership, in the form of organ ized aggressive behavior, can best be de veloped by actual practice of the response Involved. In other words, ft Ls desirable to develop leadership and desirable (hat children be capable of performing patrol duties when properly trained and supervised, and when the benefits to be derived more than offset the hazards. Review of Literature The school safety patrol was first organ ized In 1914 at Newark, N. J., and has been ttteti there continuously since that time In 1915 "safety scoots" were organized let Ta coma, Wash- "School police" wens organ ized in SL Paul, Mwhj., about 1920; the Chicago Motor Club patrols in 1921. There are about 300,000 school safety patrols in the United States. As outlined through regulations set up by a joint committee of the National Safely Council, the National Congress of Parents and Teachers, the American Automobile Association, the National Education Asso ciation and the United States Office of Edu cation, the duties of the patrol are quite weU defined A few of the haste principles are: 1. The patrol is not to direct motor ve hicle traffic. Z Patrols are to stay on the curb, except when a car obstructs the way. In which case they are to move Into the street not more than three paces or nine feet, and return to the curb immediately. 3. They are sot to escort children across the street. 4. If possible, there should be one patrol member on each side of the street. 5. Regulations for white Saco Browne belts are set up, and patrol members are to wear them for identification. 158 29lli XaiwHix! Safety Congress 6. The patrol members arc to carry no whittles., signals or other devices in their hands. Survey of Current Thought in most cases the patrol is selected on the bair'u of scholarship, deportment and suit ability for Uie job. Patrols are usually selected h\ the principal and often are trained by the local police, who may super\ isc the work done by the boys. In many places iltcy are sponsored by local dubs, the motor clubs, the American Legion and the Partni Teaeher Association. In a large number of cases they are spewi-rjred by the schools themselves, who feel it h iheir prerogative, since it has been ruled that school officials are liable in case of in jury to patrols. There is no general agreement as to the sponsorship, although it seems that the schools are w illing to accept outside sponsor<hip in most places, as it tends to divide the responsibility. at least from the layman's IKwit of view. Naturally, there *s resentment of any attempt to use the patrol for pro motional purposes. In genera! the consensus is favorable to the patrol, although there are some violent reactions. Among the objections to the pa trol. it seem* that there are no valid educa tional arguments; the objections are mostly points relating to liability; time and effort involved; inadequate training and .super vision of the patrol; objection to the spon sor; and similar grievances. Some states hav e legalized the patrol. This tew absolves she rhool official* from liability and makes it law ful for any child over 10 to be ap pointed as a patrol member unless the pa rents object by written notice. (Dr, Latter distributed mimeographed ma teria! giving the results of his questionnaire on patrols. Excerpts from this material arc given below.) In general, school people favor the patrol, but they feel that the matter of sponsorship needs careful review and that possibly cer tain regulations should be set tip concerning sponsorship. Tfjcy seem to agree that the patrol has definite educational value, but they feel that it has more value for the younger children than for the older ones. Thor seem to feel, generally, that patrols should be encouraged and that they should be provided with belts, uniforms and similar equipment which will facilitate their work. The greatest number of patrol members seem to be drawn from the seventh grade, with grades 8 aod 6 next in order. Of the "chief values of belts, uniforms sod similar equipment,** the three men tioned most often are: 1 For identifica tion; Z Motivation of patrol; X Recogni tion of leadership, Amoog the "educational values of the patrr most often listed were; l. Develops feeling of personal responsibility Ha pupils; 2. Develops safety consciousness; 3. Teaches children to watch for hazards; 4. Makes good citizens and teaches tew observance; 5, Teaches children to walk safely; &. En courages cooperation 2nd organized effort. Discussion Ds-cu*--ion centered about the questions. "Sluvuld high school safety patrols direct vehicular traffic?- Are high school patrols desirable7 If so. how may they be organized and* operated successfully? What are the functions of the high school patrols and in what ways does their work differ from that of the elementary school patrols? Is there need of a change in the Stand ard Rules for the Operation of School Safety Patrols if patrol work is extended mto high schools? Directing traffic. It was argued that in some places safety patr&U can help an inadequate police force by directing ve hicular traffic; that this is an opportunity to give concrete service to the conunumty; also that there is an educational value in the experience. On the other hand it wa> pointed out that this is recognized police work and should be performed by a regular police man or a deputy officer. In most states it is illegal to deputize a minor, and so this type of aid coaid not be given legally. It was stated that the danger involved--having young boys, without police power, exposed to the hazards of traffic in the street-- Child Education Section 159 obviated the viue oi the service. The question of liability was also raised. The consensus was that safety patrols riiould not be permitted to control vehicular traffic except student vehicles parking on a school parking area. The* can also help load and unload street cars and buses. Desirability of high school patrols. Opin ion wa* divided as to wlicther there should le a determined effort to extend the patrol movement to the high schools. There was some feeling that young people of high >chooi age do not need this protection as do tlic younger children, that they should be aide to care for themselves by tlve time they reach high school. Others present cited their experiences as an Indication that high school patrols could render a worth-while service To be successful, the patrol* must have the interest and enthusiastic cooperation of the principal and faculty member*. There must be understanding cooperation on the part of live police department- There must be a responsible sponsor who docs more than simply furnish belts and raincoats. J'mtclums. The differences in patrol prob lems in the rural high school, the urban high -cbool and tlve metropolitan high school were discussed. High school patrols are helpful m con nection with student travel by street car and b> bus; in directing the parking ol student and faculty* cars; in controlling student pedestrian traffic at street cross ings; in observing violations of traffic prac tices and reporting such violation?, wlien it seems advisable, to the principal or patrol advi-H'r, or, in some cases, to a safety court or council within tlve school. Revision of standard rules The confer- ' enee strongly recommended that chanye-* he made in the Standard Rules for the Operation of School Safety Patrols to meet the requirements of older student-- Stu dents at this level ace no longer thrilled by a Sant Browne belt or similar equipment. another name might be advisable for the sake of dignity. A group of delegates from Steven* Point, Wis., reported live highly successful operation of a eafety patrol in the high school for several years Patrol members are called "police cadets." Tlie name was chosen because it makes the boys feel that they represent the police within the confines of the school property 1 this case there is the closest cooperation between the superintendent of school*, the high school principal and faculty, interested parent.- and the police department Student Participation in the Production of Visual Aids and Radio Programs Presiding, I.ESUh R, Sa.vraKAtjr Safety Supervisor, Cleveland Public Schools. Cleveland, Ohio Discussion Edgar Dale, Director, Bureau of Educa tional Research, Ohio Slate Universlt> , Columbus, Ohio, shared with Mr. Silvemale in leading the discussion. It was brought out that there are three principal ways of mfiucnctng safety be havior: 1. Actual experience; Z Reading and discussion; 3. Visual aids, which come sucnewlttre between the actual experience and the vicarious knowledge. ft wa emphasized that "We cannot store safety learning for the future. We must anticipate certain hazards to prepare chil dren for hazards which they will have to face in the future.** Pupil participation in the production of visual rids is important in a safety pro gram. It provides excellent motivation for many learning situations, and much can be learned besides safety. Among the fac tors which enter into such a project are interviews, scenario writing, and staging the scenes. Qualities which may be developed include dependability, cooperation, and re spect for the efforts of others. Dr. Dale described an experiment which he conducted among a group of schools in the production of safety movies. 160 29th Ssitxonal Safety Congress Schools were circularised to determine the degree of interest m sadi a project Those who desired to participate and who held meetings to organize their share of the project were sent raw stock by the Bureau after scenario* were ssbrnkted Dr. Dale showed films which were as outcome of this experiment. One was a bicycle safety film by an grade civics ebss. It was % picsttre within a picture**; riot k the fiaa dc >*rioo5 Wipej iswohoi m its om mUif. The dass fine ritcted a fin director and a ntunhrr of committer*, lists were pee:arrd < f the lariot wofit is (he comnaumty who esoH bd^ with the project nclwitng the poticr. trafie judge, pimatT aod ocher* The cconsstieef wrote foe **^~n*1 and afen sformariao; they looked ng material za the library; they dewkiptd a fit of haz ards. The scenario was written entirely by the p*pl, Dr. Date also showed a problem film, entitled "Safety Sleuth," m whkh the solutioa was left to the audience. A pre school picture was also shown. In the (ficasskio following the showing of the pictures it was suggested tint chi' dren should do as nrach of the work in volved in making a fim as pomade. The relatively high coat of reproducing colored films was meotlowed. It was asserted that sound adds comparethrdy little to a good picture--that a weftptanned, weH-filmed ritent picture can he fust as effective as a somad pictorc. The qoestko was ashed whether it is de sirable to show an accident m a safety film. A satisfactory tiechcwtfne was described in winch all of the action is shown wp to the point of the accident. THURSDAY MORNING SESSION October 10,1940 Joint Session, Child Education Section and Home Safety Committee (A complete report of this session will be foend beguacdcig oo page 177) THURSDAY AFTERNOON SESSION* October 10,1940 Presiding, Gorbok Graham, Safety Supervisor, Board of Edacatko, Detroit, Mich. REPORTS ON INFORMAL CONFERENCES The chairmen of three informal confer- these reports will be fourei on page 152, enccs held Wednesday afternoon presented under the heading "Wednesday Afternoon reportv on these meetings. An account of Session." Applying the Theories of Safety Education By WM. C. KNOKLK Assistant Superintendent of Schools, Milwaukee, Wts.; Vice President for Education, M.S.C. There are marry theories of safety educa- (ion is the reduction of accidents. This aim tiofl. Many believe that the only considers- is most commendable and is admittedly the Child Education Seclwn 161 origin a* tl*e movement; it does not, bowever, tell the whole story of safety educa tion. Industry is no longer satisfied with this one objective. It recognizes that to approxi mate a fairly permanent reduction, the man factor most be considered. That means tromUg the worker. Traffic safety presents a simitar picture. To keep a sufficiently lance enforcement corps on the municipal pay roll to defer every driver and pedestrian from doing willful, thoughtless, or foolish tfaiwc* is fantastic. It would be unwise to love *wrb an arrangement of providing a '`Corporal Conscience" for every one of us to beep o one, courteous, aod cooperative; even if it arete possible, for it would keep rW tstdbndtal from developing his self re* Ami so along the whole line! The tndirAmd aod Ms idiosyncrasies are powerful factor* m safety. Mechanical devices may W ever vi perfect; if their user is tneempewuc or redkkas, the story* of safety may otoaN dtow f*****^*^11^ fatalities. Home safety affords case upon case of thw truth- Chairs that are made to sit on are Med as step tedders. Oca-rung fluids, rgftctevc U used la the right place, are used m the presence of an open flame. Utensils that are a* dangerous as deadly weapons arc left so that children may injure themselves. Tfaic human factor*--with its variable rtac* tku>i both *. to different iodividtlj and as to the physical or mental condition* of the iamc individual--makes the training of peo ple an imperative necessity. In this one fart lies die difficulty and the hope of safety education. 1 ay dijjffew/fy because training for invariably correct conduct is very cosnplex, not to ay impossible; and I ay hope because only in making men "safety ac tuated" cam we realize to the full the genius of engineering and the power of enforce ment. Problem of Training Men So we have the problem of training men in such a way that they may be actuated by proper attitudes, may be possessed of the necessary knowledge; and may feel impelled lo express this skill and knowledge help fully at all times. This is real personality devci pment. Wherever such work is being done, we find evidences of the necessary preliminary ground work: of thinking through the problem, of organizing the various factors involved, and of keeping a tentative, experimental, research attitude toward all methods employed. These three points arc vastly important The first, thinking through tbe problem, indicates aa awareness of the weed for a remedy. It also involves tbe necessary willbigness to gather tbe available information, and to come to some conclusion. The sec ond, organizing the factors, is imperative because the job must be made somebody'*'* business Progress in reform is made onlj if a good plan is supported by consistent, cuutiruiing effort to enlist more and more people in tbe cause. The third, keeping an upen mind toward our project, is mcreasmgly essential because of the rapidly chang* ing conditions under whkh we must operate Items In the Procedure We have arrived at the outline: atti tudes, desire for information, and intercel are to be generated and stimulated by thoughtful study, careful planning, and sckntiffic appraisal. This is the formula for applying the theories of safety education The Yearbook of the American Associ ation of School Administrators, "Safety Education," presented at St. Louis in Feb ruary', IWQ, outline* "A Point of View on Safety Education." The preponderant em phasis Is on the work of schools. live outline can be adapted to other uses. However. It i* not only the school that must rememlier tluw a "pointless curiosity or a vague sympathy" regarding unsatisfactory social conditions i** inadequate. Constructive remedial measuremust be deviled. The problem can be solved, hut we ro4t first be convinced of that fact. For schools to assume the burden of di reeling the safely education for children i< as it should be; for communities to refrain from making the necessary* budget pro visions to make sock a job possible is n nullify the school's possibility here An*! furthermore, for adult"life to accord onh Kp service to the obedience needed in safeu taught in the schools is also a nulHfymu influence. For grownups to profess ad herence to a principle of procedure and then to attempt to evade the responsibility in individual cases is too fine-spun a type of "obedience" to be understood by childhood. Philosophy of Safety Education Tlie Yearbook has an excellent chapter on the philosophy of safety education, written by Albert W Whitney, of tlic Natkmat lt>2 29th National Safety Congress Conservation Bureau. The final sentence is the thought I wish to stress: "The development of safety technics in such fields as industry has proved to have valuable by-products, such as increased efficiency, and it is believed that the subject of safety in the hands of an understanding teacher will similarly prove to have valuable by-products foi education* particularly tn the development of personality and char acter." Mr. Whitney has elaborated on the theme: . - Safety education cannot thoroughly justify its position m the educational field merely by its direct effects, however impor tant these may be. We must go farther and demonstrate that it can contribute abun dantly to those cultural and moral And social values which are the ultimate objectives of education." Safety education has therefore two vital aspects First, there must be a recognition of the social emergmey which calls for a solution. Second, in teaching this objective, acquiring a safety consciousness--learning to be "safety actuated"--we must develop the personality of Uve learner. Personality, social emergency, teaching, learning--these are the concepts that most be well understood. Yon must note how they tie in with our formula stated previously. The idea that the type of education most necessary in traffic matters, for instance, consists simply of furnishing informalion and that this will result logically in acci* item prevention is erroneous. Education is the process of developing attitudes. This cannot be done in a minute, or by compulsion; it comes out of interested attention, and it must be nurtured and kept alert by experience* Uiai arc satisfying. A bullying traffic officer can undo in one min ute what it has taken years to create. Discipline should be regarded not as a punishment for violating rules, but rather as a preventive measure. It should be inter preted as self-control, both physical and mental, as alert, dear thinking. This is of the essence of good educational procedure. It applies to adults as well as to children. It places the emphasis on attitude, on a willingness to abide by reasonable con trol and common sense Where this view point is neglected we have evasion under the pretense of paterrodism or individual rights. AU of this scives to illustrate the working out of the formula mentioned previously. It is. important to note that there is tio in terference in this plan with the principle of proper safeguarding by mechanical means, or with necessary precautions in first aid practices In traffic the evasion runs to complaint about police domination- In the borne, the rationalizing that is frequently met is voiced a*. "This is my home; nobody can tdl we how to run the place." Home--so the ex cuse continues--is still a place where the individual need not subject himself to direc tion by foreman, traffic officer, or teacher The real test of whetlifer a proper safety* attitude has been developed comes in such unsupervued areas. Safety consciousness-- if it is to be vital, functioning accident pre vention--must lie in these attitudes. To ig nore this, and to fail to build properly, re tards the early solution of our problem in the general field of safety education. Schools Have Done an Acceptable Job Have schools been able to transmute the grosser elements of everyday* safety -condi tions into worth-while altitudes? Have social need* been helpful in building per sonality? "It is not possible to measure ex actly (lie value of the contribution of (he schools and colleges to the physical well being of the nation," according to the Edu cational Policies Commission. "The field of safety education, however, provides one dra matic illustration of effective result*." "What has been accomplished by the t>choo)s is by itself an unmistakable indica tion that a solution can be had," according to the 1940 Yearbook of the A. A. S. A. "Between 1922, the year when organized safety work was begun in the schools, and 1938 the traffic fatalities to adults increased J60 per cent; during the same period the traffic fatalities to children of school age decreased 25 per ccnL There has been a sav ing during this period of the lives of 62,000 children of school age over what wooId have happened if the fatalities had followed the same trend as adult fatalities. These results may be largely* due to education.** The readiness with which many superin tendents have embraced the opportunity to teach this subject speaks well for their sense of discrimination and their progressive educational philosophy. Schools are to train the citizens of the future, and citizens owe Child Education Section Kxi honorable service to their community. If the make a subject valuable and worthy of .i word service holds tite implication of a duty place m a course of study? There must be owed and a duty performed, of unselfish de opportunity for active pupil participation in votion to a good cause, of tite bestowal of a the life of the school and the community: benefit upon an indifferent--not to say there must be sources for new and current ihankkss--bcncficiao'. the wotd conveys the materials to become available; there must meaning it should. Then we may say, truly, be opportunity for proper integration; there safety* instruction js a "service" schools owe must be a process of "inquiry, scrutiny, to the eootfimmty- criticism, authentication, and verification." Scht^ols training pupils for better adjust If these are criteria, safety instruction ment to the changing conditions of life and society cannot remain indifferent to the need for some definite program. Citizenship is no longer a merely academic considera tion of governmental structure and func tion It deals with the pupil's life situations, provide* an ideal curriculum content. Fur thermore, safety1 is inherently a matter oi cooperation and the society for which we are preparing youth will probably- demand a larger degree of real cooperation than has ever been required before. with his every activity. Personality Development: Heed for Safety Education Increases It s well to remember that m applying The need for safety education is greater the theories of safety education we csunmot today than ever before. Not only is this so have an exclusive compartment for traffic, because of the numbers Involved; the ma for Home, or for seasonal or recreational chine age with its engineering safeguards safety; not when wc accept the doctrine of has lulled us Into a false sense of security, personality development through safety edu and tlie unprecedented economic depression cation. The general field must lie stressed. that we have gone through has left us with That is what has caused me to say- before, a mind set akin to worry and fatigue. if driver training means only a knowledge Schools arc so situated that they can help to rectify such negative attitudes. Mental Iveatlh and emotional stability come clearly within the scope of their work, and as this corrective mstruetton can be made to quicken the "reaction time," the increased alertness will help reduce home and indus trial accidents. of the mechanics of automobiles, an ac quaintance with code specifications, and skill in shifting gears, it is hardly worth the consideration that is given to the subject. * If, however, it noeaers a philosophy of citi zenship and the art of living together, h is a matter worthy of inclusion tn any cur riculum. . Safety In the Curriculum Personality development (good sports manship,, wise restraint) and principles of From the angle of its importance to so democracy (obedience to the rule of the ciety* and to the welfare of the child, home majority and special privilege for none) arc and traffic safety is certainly a matter of then essentials to die course. The field of the sufficient importance tn include m the cur riculum. A very excellent book published a few years ago, commenting oo what is to be taught m the curriculum, tells trs that the emotional a]o most be included in this larger view. We are governed by our emo tions fully as much as by our intellect. In times of emergency, calling for rapid re answer to tills question most generally ac cepted by leaders in education is that that knowledge is most worth white which con actions. we ace prone to revert to almost instinctive habits and drives This is par ticularly true in traffic tains the greatest number of contacts with the pupil's every-day life either as a pupil or a* a future citizen. If we refer back to our formula derived a> an answer to the implied question in the title of this paper, we find that attitudes, The purpose behind any* method deter desire for intamuuon, interest are the ends mines the worth of the method; it gives we desire in everybody in his quest for an direction and meaning to method. The pur education in safety. It is a personal matter. pose gives meaning to whatever mode of It is bom out of thoughtful study, careful teaching (or learning) we may wish to em planning, and eager research. The theories ploy*. Thus safety Is an integrating factor In are the substance for our philosophy: the all school work. latter determines our methods. Obviously, What are some further considerations tint this paper cannot go Into the field of defi- 164 29th National Safety Congress nite details. TJat most be left to the avail able sources of information; to the Na tional Safety Council and specifically to the Education Division. The wealth of material to be had there is amazing. Is this general plan adaptable to other situations? Every home is vitally interested in the health and comfort of the children; every community insists on building for a happier, more effective mode of life; every school attempts to conserve all the good and extend the possibilities of every life; business is following the worker even after the whistle blows; all society, in brief, is striving to stimulate constructive living and to unbur den itself of any drags on success and progress. How can safety education be woven as a meaningful pattern into all of this? Industry obviously sees in safe procedure a sane factor of efficiency. Can we not insist on a comparable evaluation of the worth of a cooperating life risewlterc in society-? How can people be made to fed 1mimed with the vital need for safety train ing? Directors of community life and plan ners of cities know that the safe way is not only the most human way, but also the most effective and economical way in the long run Elements of Safety Education There arc elements in this brood gener alization that loom up distinctly: 1 The problem of applying the tiieories must he reduced to the personal one of man and his odcty; the individual and his re lation to the various aspects of safety. 2. \ttitudeft and emotional set mav not be neglected at any stage. These basic ele ments in personality can be formed at any stage, even though childhood h usually the crucial time for their formation, 3. Knowledge is goad, but thinking is better. 4. Dictatorial authority' is not conducive to thinking. Let conclusions be arrived at bv all through personal experience. This tells the why and makes the desired conclu sions one's own convictions. 5. Interest provides no royal road la knowledge, but it shortens, the way to a necessary understanding. If, additionally, in terest can make us yield ourselves to re straint for the general welfare (regulation), our traJfic problem, for instance, is prac tically olvvd. Promoting Safety Education If we would expand this persona) pro gram to sec h from the community stand point, it assumes a possibly more prac tical form. The strands of safety theory that have been discussed, whether with teacher training, safety patrols, home safety, bicycle riding; pedestrians, intoxication, or speed, must be spun into the warp and woof of an effective soda) fabric. The weaving will bring out the pattern. 1. First organize your safety resources into as effective, aggressive group. The movement must be kept before people as an imperative need. It must be a consistent, unremitting, energetic campaign, day in, day out There must be no defeatism. Z Impress the lenders in the movement-- the schools are only one of the important factors--of the need to be weft informed on the recent development and on the accepted mode* of doling with safety problems. Let mere opinion give way to research and authoritative judgment. The police (or en forcement officers), the engineering staff of the municipal department of streets and street lighting, tlie fire fighting department, representatives of adult organizations such as luncheon groups, civic clubs, parent' teacher organisations, play leaders, bicycle enthusiasts, etc. should be asked to help. 3. Crystallize this energy into group proj ects. Attempt no move than can be realized m a reasonable time. Home safety, traffic safety, pedestrian control, bicycle riding*, ac cident reporting, hunting, swimming, boutwig. camping, offer opportunities for activity projects. It must be remembered that au thoritative information is to be had on all these subjects. 4. If the education is to he really effec tive in its complete development, ic must be able to prove Its worth beyond devising only mechanical means in the saving of life and limb and money. The education must reach into the realm of attitudes, habits, characteristic*, etc.--into the elements of personality- The learning process ua a de mocracy has ranch more to it than mere telling; telling is not teaching. Similarly, (earning Is of more consequence than mere compulsory obedience. It is better to have a driver or pedestrian yield obedience to a signal because he feels impelled to do so rather than because he feels compelled to Child Education Section 105 5 To auempi to make progress in safety education through legislation is futile unless public opinion has been created and de mands the enactment of definite laws. The whole -safety movement is humanitarian; it is in line with social progress and with the development of an intelligent electorate. Therefore the theories of safety education must be applied with the same ardor as are rules of health and good conduct. FRIDAY MORNING SESSION October 11,1940 Joint Session With Street and Highway Traffic and Transit Sections Presiding. WiUJAU C KkoelK, Assistant Superintendent of Schools, Milwaukee; Vice-President for Education, National Safety Council. Report of Committee on Bicycle Problems By RICHARD O. BENNETT Director, Lansing Safety Council, Lansing. Mich.; Chairman, National Safety Council Committee on Bicycle Problem* This report cannot be reproduced here in full both because of it* length and be cause it h 1 **mg combined with the 1939 committee s .lungs to be published as a final report of the committee. Tliosc who wish to have copy of the complete report may obtain one by writing to tlte National Safety Council, 20 North Wackcr Drive, Chicago. *** The report cited statistics on the scope of the bicycle problem. It pointed out that about 7100 deaths resulted from collisions between bicycles and motor vehicles during )9.*5> am) that there were about 34,000 injune* from this cause The committee gave two reasons for the increase: 1. The number of bicycles in use has almost tripled. Z Motor vehicle mileage has increased 48 per cent. If this trend 1$ to be halted, the report *taird, traffic officials must recognize the im portance of the bicycle problem. A wellrounded community safety program must give bicycles full consideration. Since approximately three out of every four bicycle riders injured m traffic were violating some traffic regulation, the com mittee declares that bicyclist* must assume more of the responsibility for keeping out of accidents. Specific recommendation* made by the committee include the following: 1. All bicycles in a city should be reg istered, and standard license plate* should be Fsucd. 2. Standard regulation* should be adopted., and police empowered so enforce them bv impounding bicycle*, revoking license plate*, am! sponsoring special court* ami instruc tion classes 3 Regular mechanical inspection of bi cycles should be required. 4. Bkycle clubs in schools should be en couraged to teach safe riding practices. 5. Parents should insist that their children obey regulations, and they should af-Rt them to keep their bicycles in good condi tion. 6. Municipalities should provide as many bicycle paths and engineering safeguards >n parks and other places as possible The meeting was concluded with a sytn~ pt.'-ium on "Child Misbehavior and Street Accidents-'* Representatives of five organizations, concerned with the traffic and transportation problem 4i*cu*cd thi subject. 16ti 29th National Safety Congress Child Misbehavior and Street Accidents By NILES ANDERSON Supervisor of Traffic and Safety Activities* Pittsburgh Public Schools, Pittsburgh, Pa. Any study of the relationship between lesson*. Specific lessons may be planned on child misbehavior and damage to public car riers or injury* to children is hampered at the ftutet by a Jack of accurate statistical in formation. the dangers of clinging to vehicles, although here the problem more concerns private vehicles than it does public carriers. Specific lessons may be planned on the danger to We know that a few children each year others of throwing missiles at public car arc killed and injured hitching rides cm riers, and here again the lesson is one that street cars and other carriers, bat just how concerns private vehicles as well a* public mam and the pattern of the accidents we carriers. If misbehavior is acute m otic do not know*. particular locality or during one particular V\> know that children sometime* throw ^iUHtt-3 at public carriers and sometime* mis* Kritavc inside carriers, but tire extent of damage caused by the children is unknown, as i> the age of the children rmolved. time of the year, the schools may guide tltcit program accordingly. If individuals or a gang can be identified, the school may attempt to -lk it out" with the persons concerned. ( *ruil the records of carriers are unlocked These things being done, however, the will have no accurate knowledge of just scliool cannot function further. wltat i-* happening. Public records and rcc- rd- of the National Safety- Coutici! do **<!. -eves! this mformstioft. ! ir the present we cart assume o!> tluvt t ; rohkm <k>cs and consider the re- pou?ibility of the school in connection with she problem. The borne has a responsibility, and an authority coupled with this responsibility, in regard to child misbehavior.. When children are at school, and going to and from school, the school stands in place of the parent and has much the same responsibility and authority. This legal doctrine of "loco At the outset, while the school sreks to cram in citizenship and to mold character, the school cannot be a guarantor that chil parentis" give* tie school an opportunity to cooperate successfully with carriers in preventing child misbehavior while the chil dren will act otherwise titan children or uni dren arc under control of the school. formly behave as adults would lave them betas e The best of parents curt do this. Here j* a problem in which the school p!av only a part; the largest parts being played by the home, by law enforcement aerisctef. and by the carriers themselves. Problem Has Two Phases V- ihe problem concerns the school*, it i. two phases: child misbehavior while child is away from school, and misbe havior while the child is under jurisdiction nf the j-cliool. School Buses For example, the school may make regu lations foe the conduct of children oo school buses, and the booklet of the National Safely Council, School Buses--Their Safe Design and Operation, makes many valuable sug gestions in this regard. One suggestion to the driver n that lie "report daily to the principal any misconduct of pupils on the. bus." Pupil bus patrols are formed to bring about order as well as to assure safety. When children misbehave away from One function ot transportation in con chool, the school is limited in tlte remedial nection with the schools is (hat of taking :n.a-ure it may adopt. Tlie scliool cannot children to and from school. Another func j. mtni-h or otherwise enforce rules of so tion is in connection with school excursions. ciety. AH that it can do is attempt to dc- In cities, street car* frequently are used for vciMp an attitude that certain action.* are trip* to museums, factories, railroad stations dangerous, destructive or anti-social. and other places of educational interest Both Conduct in connection with carriers may in cities and rural communities, buses are Ik. included in the safety education course often chartered for similar purpose*. In s>: .-indy, or in connection with citizenship some school districts the same buses that Child Education Section 167 haul children to ami from *c1nx4 are used for excursions during (lie day. In all of these instances the school continues to have control over the pupils and may and should insist that they behave properly. Whenever pupils are transported in con nection witii school attendance or school activities, the school should plan the activity so that misbehavior will not occur. This means supervision, both pupil and adult. Dealing with Misbehavior It misbehavior docs occur when the school has jurisdiction, what then? Inci dents should be reported to (lie principal of the school concerned. The principal may t!un deal directly with the violators, or in directly through the parents. In Pittsburgh we transport a number of children by taxi cab Occasionally these children have a lettduncv to put their arms outside the cabs We have found that a noic home to the parent, or a meeting between the princi pal and the children concerned wifi correct the situation. Child misbehavior in connection with pub lic carriers is only a small part of the whole area of child misbehavior to which the school directs its attention. The school seeks to develop good citizens who are in terested in their own personal safety, and who respect the right* and property of others. Proper conduct in connection with public carriers should be one of the spe cific lessons In the larger program of the school, and should he a specific lesson when any serious condition arises. Where the school has control over the vehicle of trans portation or over the children, it is in a position to insist upon proper behavior, and may enforce it* demands. Let us not be too hard on children. They live in a world of restrictions and don't*, and many have no effective outlet tor the pent-up activity that is the very lifeblood of childhood years. Let ih understand them as children and not treat them as criminals. Let us understand that our problem is not children versus public carriers, hot children versus a complicated society in which ad justment is difficult. Child Misbehavior and Street Accidents By M. F. BYRNS Director of Safety, Toy* Bros. Yellow Cab Co., New Orleans. La. Did you give little Mary r,r liUte Willie a jail of skates, a scooter, or a bicycle last Christinas? Like all loving parent*. you knew the children wanted these things and you enjoyed their excitement and happiness. But did you explain to them how, when, and where they should ride the skates, scooter or hk\cle? Did you give them tiw advantage of your experience? Did you impress them with the importance of avoid ing certain accident-making practice*? If you stand indicted on this charge, it is a poor consolation to know* that several mil lion parent* likewise failed to give their children sufficient safety coverage.. A casual survey reveals that children In volved in traffic accidents were: Uidmg scooters; riding bicycle*; skating m ftreets; playing in streets; hitching rides on automobile* and trucks: riding two on a bicycle; standing up in moving automo biles : running from behind bushes; small children left unattended; riding bicycles against traffic; riding bicycles into obstruc tion; playing ball adjacent to street*; coast ing down incline* near street; running front behind other children; leaning against doors m moving automobiles; riding on iuniting boards of moving automobiles; running or sliding down embankments along the right-of-way; holding on to a moving truck or automobile while on bi cycles, xooters or cart* Child accidents arc popularly clarified in the a&e range a* follows: The first class is up to 5 years; the second class include* children between the ages of 6 and 14 years ; the third, between- 14 and 21 years. The first class ha* a low accident frequency, due to greater precautionary* measures by parous, nurses and others entrusted with the care of small children, and the inability of the child to move around except In a limited sphere. This protective influence no doubt reduces the risk, yet children of this group ate usually involved in accidents while 168 29th Salional Safely Congress riding in automobiles, such as tailing off 'rats in a sudden stop or a collision, In the next age class, from 6 to 14 years, the child has a greater sphere of actirityHc now seeks more adventurous pastimes, like playing, slating and riding bicycles and scooters in and near streets. Less under the' influence of the parents, he is now guided hy whatever safety discipline or training the teachers in elementary schools may in stitute. During this period the child is ex tremely impressionable. With the correct approach he am be made to acquire lasting safety habits The next class, the years from IS to 21, i- the most dangerous and shows the highi -it accident frequency. Members of this group are practically on tlio'r own resources, assuming the role of making their own de cisions. All restraint or influence cither by parents or teachers or any other agency is resented or blandly ignored. Yet this is the very* age in which the youth is not only a pedestrian or passenger, but is beginrung to drive automobiles. When this age is reached, the greatest influence should be exercised over the youth, and he should be reaping the benefit of whatever safety habits, judg ment and acts have been menteated in the previous Sfte classes. 1'arenU sometimes, knowing that a child !m* been guilty of some unsafe act or that ;hc> themselves have unduly exposed thexr vliiidren to some unnecessary danger, change the physical facts of an accident by falsi fying or misrepresenting cireamstances for a claim bench*. This gives the child the im pression that there is a premium for getting: into an accident, and thereafter the child thinks less of his own protection and the avoidance of tltosc acts which may .lead to accidents. T'*rent.< chould never boast at their jictd records. They should not 'drive careje<h when children are riding, and thereby give the child the impression that carelessucs* is rhe "smart thing." Parents should re-peer traffic regulations, should discourage had driving practices, traffic violations ami scries about the fixing of traffic tickets, fines, etc, giving an impression of utter disregard for the importance of, and com pliance with traffic and safe driving regu lation*. Main parents have unwittingly and unknowingly started children on their way lu "-crious accident* by such acts. A new juggernaut has been given to our youth--the motor bike. This device, capable of a sustained speed of better than twcmi miles an hour, is most dangerous and should be placed only in the hands of skilled operators, wcli seasoned in all traf fic and road conditions. These motor bikes are being operated by many inexperienced children under fourteen years of age. Po lice officers are prone to excuse or over look the traffic violations of bicycle and motor bike riders. Children are, therefore, permitted to take undue and unnecessary chances. Motorists have become involved in col lisions with bicycles when these children fail to observe stop signs, drive on the wrong side of the road and ride bicycle* or motorbikes without lights. The police, m overlooking traffic and safe driving mistakes instead of correcting them, are not ouly placing a heavy burden ou the motorist, but are doing the children an injustice bv aid ing and abetting these dangerous and harm ful practices. The juvenile courts are slow to act other than to give a nwJd talk which hi most cases give* the child offenders the im pression that they can act ou impulse and do as they please and get away with iu Tin? is absolutely unjust and unfair to the chil dren themselves, and the child learns too late that he has been completely let down by his parents and safe driving authorities. The operators of passenger earners should be especially weft trained in the traffic <lartgers to which children may be exposed both when riding its bases or public carriers and also when they are walking or cycling on streets and roadways. This docs away with the old a.Hb?, "1 did not expect ilic child to do that,** Your operator m this day and time rrraji know exactly whan to expect and bow to prepare for the avoid ance of accidents. To avoid child accidents, our company regularly dramatizes children ma our weekly afety meetings. At the bcgxnomg of the vacation period the cooumsskmer of public playgrounds is invited as the guest speaker. While he is talking, several little folks are fitting or walking around the stage When the fall school term opens, we inrite three children. one each from the lower grades-- kindergarten, first grade, and second grade. Wc also invite a school safety patrol Ijov. Child Education Section 169 There children give brief talks asking our operators to reduce their speed and avoid accidents in school zones. TI traffic boy asks for the cooperation of all motorists. At other times oi the year, whenever appropriate, we have children on the weekly programs This vitalizes the instructions, and the men carry away a greater Inspira tion. In our weekly safety booklets, which include traffic and safe driving instruction, the safety* oi children is featured fre quently. This procedure seems to produce results. since wc Itave had no child acci dents under 17 year* of age and only three involving children up to 21 years of age within the last three and one-half ycais Wonderful legends for the amusement and pleasure of childhood have been ere a ted and pre served tor centuries. Christina* and the legend of Santa Clams has reached recognition the world over. Nursery rhymes ami talcs have been printed in all languages. The legends of Hallowe'en, Valentine's Day, Thanksgiving Day, Arbor Day, Flag Day, Decoration Day, Constitution Day, Birthdays of Presidents and other such cele brations. have thrilled children and fired their imagination- Our libraries and school* contain wonderful book* of prose, romance, adventure, ami poetry--all of which make tasting impression* on boys and girls and tw* flnwht influence their actions later. If Mich wonderful accomplishment* have been made for the pleasure ot childhood, would it not *eem plausible that a like universal action with the same intensity for the protection of childhood should be in stituted? Why not a safety day, set stride as a legal holiday to give thanks for being accident free and to inspire every one to a greater .safety consciousness.? Safety in all its phases--for play, for school, for lomc, should be instilled by every agency Including parrots, so that the child from its earliest observation may become schooled ami drilled in nothing but safe act* While much has been done to remedy chtkl accident frequency still a greater effort on the part of parents to impress upon children basic rules for their protec tion i needed. Greater efforts should be pul forth by teachers and school boaids throughout the country m making compul sory safety education, not only in elemen tary schools, but also in the high scltoo) and college, so that these groups will assume their responsibility on the highway cither in or out of cars. School board* *bnttld enlist tfie aid of radio stations, newspapers, cler gymen and others to disseminate safety edu cation and inspiration to parent* ami chil dren alike It should be the aim of these agencies to enlighten both the parents and the children to the saturation point. Child Misbehavior and Accidents By EDWARD J. KRKH ' Manager, Accident Prevention, Philadelphia Co., Pittsburgh, Pa. This firty problem which las troubled public carriers, commercial fleet operators, and the private car driver for a fcoac time. We believe it may be minimized through education and through the coopera tion of the law enforcing agencies. A few examples follow: Miotic* thrown at passing vehicle* Oftennme* a missile thrown files into an open window and strikes the driver or his pas-enjrcrK causing injury, or it may strike aod break a window. On one property, in a three year period. 1,125 such accidents were repotted. Most of these caused broken win dow* In the car and subjected the driver ami the pa^srngrrs inside the car to injury from flying glass. In 122 case*, injury* faulted, and in some cases it was severe, involving the eye* and permanent injury. Although only 1,125 such mishaps sere reported, it is quite probable that many more missiles were thrown at pairing vehicles, which luck ily did not strike window. nor cause injury or damage. The missiles thrown were fruit, eggs, rock.*, snowballs, and BB gun bullets The practice varies seasonally For ex ample, a good wet snow will produce as many as 15 such occurrence* in one da>. In the .crowded areas, where there is little di version fo* other types of play. live greatest m 29th National Safety Congress difficulty is usually found. The greatest difficulty i experienced in areas where play grounds or schools are adjacent to densely travelled arteries, and in areas where chil dren congregate. Stealing Rides This is a most dangerous practice and has taken lives, caused permanent injury, or con fined children to the hospital for long pe riods of disability. Children will ride upon the sides, back, and the roof of any vehicle. In fart, tliey Hill take extreme measures and make use of any facility which offers them a foot- or hand-hold. The injury usually follows when the offender is brushed off by a passing vehicle, brushed off by a pole, parked vehicle or other obstruction, crushed between vehicles when they collide, thrown or falls off a moving vehicle, jostled off a moving vehicle by a companion, frightened by the driver or some person and jumps off into the path of an approaching vehicle, or injured while attempting to board or alight. For a number of years, designers at tempted to construct the vehicle to make it impossible to hang on, but these attempts have not been completely successful. It h obvious that many of these accidents occur without the know ledge of the oper ator. Consequently, few reports ate made unless the vehicle is stopped by a pedestrian and the driver notified of the mishap. De spite the fact that few are known to the operator. 125 injury cases were reported on one property in a three-year period. Some of these resulted in permanent injury, and some in death. The problem is not confined entirely to juvenile:- of school age. Most all involved males ranging in age from 10 to 18 years, and they occur most frequently' ta the densely populated areas. A survey also indi cates that boys steal rides to and from school. It is obvious that the vehicle .operator lias little opportunity to control these prac tices. If he attempts to eject the offender white moving, he may cause him to jump into the path of a passing vehicle. If he stops to make the ejection, the offender will board again when the vehicle proceeds, and it is obvious that the aid of other agencies must he invoked. Other Types of Misbehavior Practice* of children pulling down the trolley when the street car stops for pas sengers. When committed at night, it has caused persons to fall while alighting, while boarding, or inside the car. Following ve hicles have crashed into the rear end of a darkened car, and vehicles may strike the operator while he is attempting to re-wire the trolley. Children who use public tamer vehicles on tlie way to and from school, shore, crowd, and push for position at the car stop.. Some have beta forced or thrown trader a moving car and limbs amputated, or they have met death in tins manner. This prac tice has also produced falls while boarding or alighting. Coasting across heavily travelled intersec tions is particularly dangerous and gives the operator of the vehicle very little oppor tunity to avoid an accident Obviously, coasting upon such streets and at such in tersections should be discouraged. - Recommendations 1. Educators at periodic Intervals to in struct children and discourage these prac tices. 2. Use the sdiool patrol as an observation medium to report any violations to school authorities. 3. Development and distribution of iti struct!octal material by the National Safety Council to schools and other agencies which reach parents and police officials. 4. Encourage police officials and others who patrol the streets to be observant and u am offenders. 5. Newspaper and radio publicity. 6. The National Safety Council to bulle tin its Transit Section and Commercial Ve hicle Fleet members at periodic intervals, asking them to cooperate and urge them to bring the matter to the attention of their local interested agencies. 7. That the National Safety Council issue seasonal warnings where they apply, to edu cators and municipal authorities--for ex ample, a bulletin fn October, asking for in struction to children and community pro vision for coasting areas adequately pro tected. Dangerous intersections should be promptly ashed. A bulletin in June, asking for instruction to children to avoid play upon the streets during the vacation period, and community provision lor adequately protected play areas. ChiM Education Section in Child Misbehavior and Street Accidents By DWIGHT McCRACKEN Director, Traffic 2nd Safety Bureau. Liberty Mutual Insurance Co., Boston, Mass. The misbehavior of children is an impor tant factor m oar traffic accident toll. The term "misbehaviori* Is an interesting one hecaut-c it can arise from so mam different xmreo. A child may misbehave through lack of knowledge or appreciation of traffic dangers. Accidents from this cause usually involve very young children who toddle out into the ureet and are either struck by a pass ing vehicle or force it to strike a parked car. another vehicle or pet haps wnc other pcile-lrian. Another r\ pc of mi.sbcharior an?es from childi>h in pettxmiiiless o-r thoughtlessness, a characteristic by no means confined to children but occurring more frequently In that age group. In this case the child knows better, hut through youthful cvsllru*iaim or ut tenfulness commits unsafe acts which re*uk m accidents of the following type: child struck when darting into the street after a ball; alighting from vehicle and -truck while rtanning tn front or in back of it, particular!} In the cam: of a sclrool bus or street car; rtrdilog across the street to inert a playmate or home-coming parents. Pcrhap the most troublesome type of chad tmsbehatior is the intentional viola tion of traffic laws or safe practices. Some times it is done in pursuit of sport or a free ride: other times in a r-ptrit of mischief, often malicious. Typical accidents- resulting from this basic cause are: hitching rides on tlie backs of trucks or transit \ehtcles; stunt riding on bicycles on busy thoroughfares; coaming on unprotected streets: throwing stones at passing cars, particularly street car* and buses. The number and cost of cliild accident* arv not tabulated separately, and so I was unable to obtain definite figures as to the number arising from each type of misbe havior and the expense involved Appar ently the frequency or costliness, when com pared with utt traffic accidents, is mil suf ficient to warrant separate tabulation How es er, such accidents, when they Jv happen are apt to be more serious, and the hu manitarian considerations surrounding in jury to children make thi* problem exceed ingly important regardless o actuarial con siderations. That the insurance companies are sensi tive to this is apparent in the many safety activities being carried cm by them to help educate and control juvenile behavior in traffic. They are working on the problem from two angles: (1) they are helping to instruct and influence children in proper traffic behavior and (2) they arc helping motorists drive with such care that the care less and even reckless actions of children will not involve them in accidents. Child Education Perhaps the commonest mctSiod used by insurance companies in helping to educate children is (lie publication of booklets, leaf lets, etc. These are written to appeal to children of grammar school age and have done a great deal to help sustain *afct> consciousness A good example of this is ''Peter and the Whiffle Hound,*4 a booklet producer! and distributed by my own Company. Tin* is the story* of * little boy who start* out for Turn's birthday party. On hi* way he en counters the bad imp. Danger, who tempts him to commit, otic after another, all of the outstanding traffic "faux pa*" from dash ing headlong into the street after a ball to hopping a nde on the hack of a truck Peter's little etog. Safety, coroo u> the res cue with eyes that flash red ur stern to indicate approval on disapproval of Peter's actions. Peter finally learn* to heed Safety's ocular warnings rather than Danger's cwl invitations, and he arrive* at Tom's party all in one piece. Safety's eyes then take on a red atvd green striping to match die peppermint ke cream reward. The value of this type of approach to the problem is reflected iu rite large mimhet of requests from sdioeK safety councils, women's clubs, parent-teacher group*, and s-imilar agencies for literally million- of copies of this booklet, which we Mipfsly gratis to sound, sincere, safely m^nirations. For !d<r children -e have a little book let entitled "Walk Warily ** It * illus trated with humorous cartoon* which put 172 29th National Safely Congress across 15 ^aic-uaiLiog points with a min imum ot \crbagc In addition to the usual methods ot distribution, the Nassau County Police ot Long Island, New York, have arranged to have the theaters hand one to each patron at the box office. Other com munities lave had copies handed to jay walkers through Police or Boy Scout co operation. Of course there are a great many insur ance companies, both casualty and life on* der\vritcrs, that are doing similar work, of wiikb these few samples are merely typicaL The problem of sustaining safety interest among children requires a continuous out put of new booklets m large quantities, and I feel that the insurance companies are helping a great deal to fill this need by supplementing the activities of other types of agencies concerned with safety. Another method of education, somewhat more navd and of more fernted scope, is the use of games We have developed a game called Highway Patrol which has been used in a great many schools. It entertains as it teaches, and the children learn by "doing." Perhaps the most prevalent child safety toot of all those put out by insurance coaapames is the poster. All sorts of appealing pictures have been placed throughout the land to suggest ways of improving juvenile traffic practices ami attitudes. .Motion pictures afford a less frequent but highly effective education method. School children of all ages have had the benefit of such films as Metropolitan Life Insurance Company's "Once Upon a Time," Aetna's "Saving Seconds," and John Han cock's "Why Be Careless." A film directly applicable to our problem among the younger children has been "Speaking for Safety," produced by the National Educa tion Association with the financial aid of the Automotive Safety Foundation. The most recent child safety film develop ment that has come to my aucmkxi involves Liberty Mutual's Davis S. Beyer Memorial Award. Tills goes each year to the com mercial producer of the film that serves best to encourage a safer use of streets and highways. I have here the advance script for a production of an OUR GANG story' that portrays all of the necessary* safety mes sages lor children from seven to seventeen, and then some. Tt won't harm parents one bit to take Junior to `tec it some Saturday when it is playing in the local theater. The producer has been encouraged to take this forward step of combining entertainment with a child safety theme because of the splendid support given to past Award-win ning films through the established publicity channels of the many national organization* cooperating with the Motion Picture Traffic Safety Committee. This committee is composed of 14 mem bers and more than 100 cooperating groups reaching 43 aniUioci people. The committee not only judges the Award Un also encour ages the production of safety films. One film, theatrically produced and distributed, can reach 20 to 40 million persons in 8 to 10 thousand theaters in the short space of six to nine months--an educational channel worth cultivating, especially when we con sider that sight plus sound provides 38 per cart greater retention value than cither alone. (Carnegie Institute.) The more flagrant forms ot intentional misbehavior such as stealing rides and throwing stones St passing vehicles can and should be checked immediately by enforce ment without waiting for the effects of long time education. Driver Education Tite other half of the solution to the child misbehavior problem ties m accepting the old adage, "Boys will lie boys." (I never could see why they didn't include girls m this.) And in taking steps to save children from those misdeeds which are bound to occur in spite of ah the education we can bring Jo bear. Here again the insurance companies are doing their part. 1 wi>h I had a dime for every booklet they have dis tributed on safe driving, stressing the need of looking out for children. Starting with dietr own policyholders, they supply tliesc to millions each year through police de partments, schools, and all the other safety channels with which most of us are familiar Three years ago our company brought ant a booklet called "Crash-O-grams" which illustrated, by the case method, a technique termed "Defensive Driving" It showed the need for going beyond mere careful driving and obedience to traffic laws, and for driving with such defensive skill that no matter what traffic mistakes the other driver or pedestrian might make, a driver would be ready, willing, and able Child Education Section 173 to avoid tltc accident situation thus created. It i$ this type of driving that roust be re lied upon to save the erring child. By being constantly an the defense, a driver can pro tect not only himself but all others in the roadway, particularly children, from unex pected tragedy. The insurance companies are actively working with millions of automobile policy holders directly while at the same time aid ing or supplementing the excellent work of the National Safety Council, the American Automobile Association, the school gad police authorities and other bodies. Child Misbehavior and Street Accidents By CAPT. ARTHUR V. ROTH Bureau of Safety Education, Department of Public Safety, Cleveland. Ohio Child misbehavior and street accidents present a number of factors which we can not afford to overlook if we are to be suc cessful in solving this problem. Home en vironments, street life, truancy, physical, psychological and emotional characteristic* of the child, altitudes of independence, dis respect for taw and authority are all com mon factors to be considered. The Bureau of Safety Education, Cleve land Police Departraeat, has approached this subject on a scientific basis. During the past four years we have made some interesting and sigmScant experiments. Oar first step was to ascertain through nur records what part of the dty had the bigticst risk area. The boundaries were then defined and a survey was made in order to team what constructive factors as well as risk factors were present. The cocuvtmctii* factors consisted of churches, schools, playgrounds, libraries, etc, while the risk factors were listed as pool rooms, beer parlors, movies, gangs, etc The economic >tatias of the area and the foreign-bom white population, by country of birth, were alvo included na the survey. A study of the gangs ranging bo ages from eight to twentyfive year*, disclosed their methods of opera* trig; die leaders and members; ages: cor reel names: aliases; addresses; make and license numbers of automobiles owned or used. The various gangs7 activities were rather diversified, ranging from traffic violations, destroction of properly and petty thievery to serious felonies. The gangs seemed to delight in sending a barrage of rocks at any taxicab, truck or auto that would pass ibeir way, and many times they would go to the railroad ami shoot or throw stones at pass ing trains. These depredations resulted in some very serious accidents. After compiling sufficient evidence a* to the gangs' activities, the leaders of each gang were called in separately and con fronted with the evidence at* hand. We ex plained to them that we were not anxious to send therm to jail but would rather enjoy helping those who were old enough to work to find employment, organize dobs and help them in other ways. For the younger mem bers we would form clubs. Boy and Girl Scout troops and organise various recrea tional activities, It was necessary to win the leaders over before trying to do anything with the younger members. In each case the leader* consented to go along with our program, We then called a general meeting of aB the leaders, 65 in ail, and there wasn't any love lost between those fellows, since the gang* were fighting each other. With a good banquet and entertainment, the club idea was brought op. At first the leaders were reluctant to elect officers, but after erne nomination was made they all wanted to be President, since one group did not warn the other one to heat tiicm. The club wni organized, officers were elected and quarters were made available consisting of a library, radio room, pool room and game room An employment agency was estab lished. We placed more than 600 young men, including members of tite club and others from tiie neighborhood. In industry. They agreed to bank some money each pay day. These fellows have made good at their jobs and are now carrying bank books. Boy Scout troops were organized tn the area, with police officers heading die troops as scoutmasters. The beys who booed the 1/4 29:h Xat tonal Safety Congress American flag have now learned what s means and salute the flag They have been caught to keep clean, cook. swim, signal and lake part hi various wholesome activities that youngsters enjoy. A day's outing with iie parents brought more than 300 parents out to enjoy a day with their children. The preparing, cooking and serving of meals was done by il>c boys. This was the first time in the history f the area that such an outing of parents and children had taken place. Gul Scout troops were organized. Gsrte who had been graduated from high school and were living in the area headed the troop* a* captains. Meeting places were procured through the help of the various pastors who cooperated in the program. Children were taken on boat rides and to circuses etc., so that tlvcy would have an opportunity* to realize that there was some thing more in life than playing in the street and being destructive. Harmonica and Flute Clubs were formed, consisting of both boys and girls. These children played for some of our civic organ izations, and this helped them change their octal attitudes.. Our Bureau established a day camp and <lo made bus transportation available. Chil dren are taken to this camp, given a bal anced diet, taught games, handicraft, dra matics, sketching, etc. Girls in the area were in need of new dresses, and so a sewing project was con ducted in which needy girts had an oppor tunity to make themselves new clothes under expert uprr\'isioa. Materials were furnished by interested citizens. After the dresses were made we had a style show, at which colored rnoring pictures were taken These w ere later show n to the girls. Though gratified, some of the girls said, "The dresses are fine, but we don't know how to wear them " This indicated the need of a posture school, which was subsequently organized. The mothers became interested and now help the girls make their dresses. An Achievement Shares Company has been established for bo>s in tbdr teats. Each boy gets a chance of a business edu cation. The boys are taught how stocks arc bought and sold, and why they keep 51 per cent of the stock in their company. They have a board of directors, and all the vdicco necessary in big bu*ine$- Each buy must work at the beach and help produce the saleable materials. The articles made include bird houses; garden markers; book shelves; and what-nots. A sales force is maintained, and the principles of salesman ship are learned. A recording is made of the sates talk given by the various would-be salesmen, and the boys listen as the record ing is played back >o they can make wliatever corrections they think necessary to increase their effectiveness. Through this company the boys get a business and med&mcal education besides receiving spend ing money when dividends arc declared. To keep the children out of the street wc imined 5oft bait leagues. Each member m the winning teams is presented with a medal, also having the privilege of enjoying a banquet at the end of the season. Our radio program, known as the junior Safety Police Club, with a membership of 125.000 children, has been very helpful. We have been able to put some of the young sters in the area on our program, mention ing their names, and the psychological effect has been very impressive A number of free moving picture shows were held in the area, for children, featur ing safety and character pictures. More than 2,200 children attended each show.. We also had poctme shows for the parents which brought about a better feeling be tween the rationality groups. Several play spots were built m the area. Xo damage was done to any of the appa ratus because of the protection afforded by members of our club who were assigned that responsibility. To augment our Americanization program v>e inaugurated flag raising before church >erticcs on Sut. fay mornings. This was favorably received by the parishioners. During the hot summer months wc placed showers in various parts of the area, giving both young and old a chance for a re freshing silower. We sensed the importance of a |<rmattenl camp where we could take members of our junior safety councils and other children who aie in need of some wholesome out- of-doors life. This camp is not one of a primitive nature but rather a high type mod em establishment with polished doors, drapes on the windows, furnace and fire place. In another building we have a shop for handicraft work on the ground floor Child Education Section 175 and an auditorium cm the second floor. We also have a farm where the children can raise various kinds of vegetables. For outof-door activities we have an athletic field, swimming pool, archery, miniature golf course, hills for coasting, skiing, skating, etc. Religious services are lurid at camp, Accidents occurring to school children throughout the city arc recorded, and a complete report is sent to school headquar ters each day. From there a letter carrying all the details of each accident is sent to the principal of the school the injured child at tends. The principal capitalizes on this in formation by having the entire school dis cuss the accident, how it could have been prevented, and what rules were violated. \Vben rowdyism or destruction of prop erty U committed by students while riding street cars, the railway company notify the Bureau of Safety Education, which makes an investigation. In the school w hich the offending students attend an auditorium period is held, and the laves pertaining to the violations are explained to the students. From oik experience this method has been Very effective. The railway company has gone a step farther It has made a safety movie called "Vow Bet Your l.ife" Every junior and <cruor high school student in the city made -uggestioas as to what should be included in the picture. This meant that thousands of students were interested in the making of the film. When the continuity was writ ten, youngsters from 11 junior and -emor high schools were chosen as actors. The picture was made in sound and has had a tremendous psychological effect when shown in tlie schools. With the cooperation of all railroad pohev the problem of trespassing, shooting ami throwing at trams is being solved. This group holds monthly meetings and through various committees it has launched an edu cational campaign which is getting results. Placing targets in play spots and making a. game of throwing lias helped materially. When a child comes in contact with lK?licc. The Bureau of Safety Education i notified. We send a plain clothes police man to the scene. The officer takes the child home, then completes his investiga tion. The home investigation is made by another member of the bureau. After all information is gathered it is presented to a board of review' which consists of the attendance officer of the board *f educa tion, superintendent of Catholic schools, superintendent of Catholic charities, social worker?, a member of juvenile court and oar officers. This board decides what should he clone with the child. Through the procedures outlined we have reduced child misbehavior 65 per emit in the area where our activities hare been con centrated- Recently we have incorporated another targe area m our activities program, and eventually the entire city will be covered. ADtOURYUF.Xr Home Safety thuksday morning session October 10,19-W Joint Seuion, Child Education Section and Home Safety Committee PrrsUmt, Rosamond Losh, Executive Secretary, Children's Bureau, Kansas City, Mo., and Chairman, Home Safety Committee, National Safely Council. Home Accidents--Where, How and Why? By DONALD B. ARMSTRONG, M.D. Third Vice-President, Metropolitan Life Insurance Co., New' York City, and W. GRAHAM COLE Director of Safety, Metropolitan Life Insurance Co,, Hew York City Every day. on an average, 88 deaths result irons home accidents in the Hatted States, or 3,7 death* every hour. Home accident* are responsible for 34.5 per cent of ah fa- uditiie*; resulting from accidental causes. Furthermore, home accidents represent tlie eighth most important cause of death, ex ceeded only by heart disease, cancer, cerebral hemorrhage, nephritic, pneumonia, tuber culosis, and to a very small extent by motor vehicle accidents In September, 1928, the public wab shocked to learn of the Huge lots of life resulting from a hurricane m Florida During the perky! of this disaster, 1.180 persons met their death. Approximately the same num ber of persons die a< a result of home acci dents in the United States every* 13 days throughout the year--a continuous disaster During the 18 months of the World War, 50,510 members of the American Expedi tionary Forces wet t killed in action or died of wound*. I"Hiring the past 18 months, approximately 48.000 men. women, and chil dren have died as a result of accidents in ttsc homes oi our nation. Disabling Home Accidents In addition to fatalities, home accident, accotdtug to five estimates of the National Safety Council, result tn 4,700.000 disabling accidents a year. or an average of 537 per sons disabled through home accidents evert Itour. Home acciderrts are responsible foi 53 per cent of the disabling injuries resulting from accidents ot all types in this country, ft is farther estimated by the Council ihar home accidents result in an annual ccu- nomte bs of appcoxinutely tMMM, w an average of approximately $68,50(1 an hnut throughout the year. This high sacrifice of life, disabling of m thvkluals, and economic loss would be ap palling at any time. It \% of particular nificaocc now, liowocr, when we a* uatkm arc concerned with national c!efcn>c. requir trig the greatest possible conAervatiotx man power and resource?. Accordingly, the prev'cmion * of home accident* should Ik considered not only from the humane anl rconomic standpoints hut likewise from ih;n of national vitality Epidemic Proportions of the Problem Ac a cause of death and disability, tin home accident problem may rigmficanlty tv compared with eome ot the hitherto nuK>r diseases mankind, manv of which Have yielded to scientific control. For cxampl-. during live first *c\cn months of 1940. tin home accident death rate among Industrie poliev Judders of ihe Metropolitan Life In surance Company amounted l 12.0 per hun dred thou*ad policyholders. During the 177 178 29Nt A a/iV?a/ Safely Couyrcss 'June period, a combined rate of 3.7 was noted for the following five communicable diseases: typhoid fever, measles, scarlet lever, whooping cough, and diphtheria. It would seem logical to consider the can' tro) of the tome accident problem from a public health or perhaps "cpidemiologkar point of view and accordingly, to review tto fundamental steps taken by science in the control of other serious causes of mortality and morbidity. In general, these steps have been as follows: 1. Scientific research--resulting m an iden tification of factors responsible for the cause ,md spread of the disease under considersikm; 2. Local epidemiological surveys--to dererniine the existence or non-existence of the ditcase and h? etiological agents in a given area: 3 Central and preventive procedures--the development of a program for the elimina- lion of conditions producing the disease in the given area. Similar procedures adopted by industrial organizations have, according to the National Safety Council, resulted in a 69 pci cent re duction m accident frequency and a 50 per cent redaction m accident severity in the period from 1926 to 1939 inclusive. Many industrial organizations have been able to reduce accidents to an even greater extent, and there are outstanding cases of large in dustrial planit> which are now able to con duct their operations for one or even more vi-aio williout an accident of sufficient se verity to cause loss of time Measures for the prevention of occupational accidents parallel those of disease prevention: ), Industrial Safety research--ter deter- nune tltc phvrical conditions and the work ing practices responsible for occupational accidents; 2 Local plant surzvys--to determine w tosher improper* physical conditions exist -r whether unsafe working practices are io.lowed in the plant under coasideration; 3. Control and prevention--the develop ment and conduct of a well-planned program ror the eltminaiioa of unsafe conditions and ilic correction of unsafe working practices. Because of the success of these funda mental steps in the control of disease and occupational accidents, it would seem that these same principles might well be applied :n the home accident problem, along the following lines: 1. A comprehensti'e statistical analysis of home accident experience* to determine the physical conditions and individual practices chiefly responsible for accidents in American homes. 2. Intensive and localised home accident surveys--\o determine whether these known unsafe conditions exist or whether known unsafe individual practices are followed in the homes under consideration. 3. Control and prevention--the removal or correction of unsafe conditions and the de velopment of safe practices by individual*, in the home. Actually, in the held of home sail step* two and three are very large!) the respon sibility of the individual and bis family. An organized program of education, however, based upon an accurate knowledge of condi tions and practices responsible for home ac cidents, Is necessary to encourage action on the part of the individual. Some accidents are due to live design, con struction, and maintenance of the building itself and may, therefore, be considered a responsibility of the architect and builder rather than of the occupant The prevention of such accidents, however, likewise requires an analysis of accident producing conditions. Existing Data While we know that the home accident problem is serious, we scarcely know enough as yet to provide (Ik basis for a real pre ventive program. Upon records of the United States Cen sus Bureau and those of State health depart ments, the National Safety Council annually estimates the number of deaths and nonfatal injuries incident to home accidents m the United States. The data relative to fa talities are obtained from coroners* reports and. therefore, can be considered fairly re liable as to gross totals. These data arc clarified according to age groups and Arc principal types of accidents, namely: bums, tail*. 6rearms, mechanical suffocation, and poitoning. Xo additional analysis of fatal home acci dents U made on a national basis. Some health departments, however, make a more detailed analysis, tiie most complete being that contained in the annual report of acci dental deaths published by the Kansas State Board of Health. This analysis classifies home fatalities by type, location within or Home Safety 179 w hltcut the house, and cause. A study of borne accident fatalities for the city of Cleveland was conducted in 1935 by H W. Green, Director of Statistics and Research of the Cleveland Health Council. In the report of this, study, "How Safe Is Home?" the accident fatalities are analyzed by resident location, age, sex, economic status of the injured party, and type of ac cident. Some interesting case reports are included. In Use field of non-falal home accidents, however, no comprehensive national study i*as been made. Perhaps the most complete analysis m this field is tlsc five >ear report issued by the Travelers Insurance Corapain, based upon benefits paid under personal ac cident policies of that company The re port contains a fairly detailed analysis of approximately 48,000 home accidents, by typo. No ether analysis of home accidents, however, is included in the report lurnw- accident stud) covering the period irom November 15, 1939, to May 15, 1940, was undertaken under die direction of Pro fessor Irma Gene Kevins of the Kansas State Teachers College and a Fellowship Student of the Center of Safety Education, New York University. The study had the support of the National Organization for Public Health Nursing and the active par ticipation of the Visiting Nurse Association or Public Health Nursing Associations of Detroit. Mich., Indianapolis, Ind., Kansas City, Mo. Minneapolis, Minn , New Haven, Conn,, Philadelphia, Pa. Pittsburgh, Pa. and San Francisco. Cal. As a result of this study 550 individual Home accident reports were submitted b> the participating members of the Associa tions listed, Ttosc reports are now being tabulated. The report form included the following questions, to each of which was appended a check list: "Wiser, and where did the accident occur?** "What are the im A survey* of Home accident* resulting in mediate factors?" "What are tlve contribu hospitalization at the Cook County (Illinois) ting factors?** "Who was involved in the Hospital in 1933 and 1934 was made as a accident?" *Whal was the person doing at Work* Progress Administration project the time of accident?" "How will tlte acci sponsored by the Cook County Bureau of Public Welfare supervised by the Na tional Safety Council. This report contained an anaalysis of 4,602 hospitalized accident cases classified by location and by type. During 1935 and 1936 the United States Public Health Service conducted a National Health Survey with W.P.A. assistance. This survey consisted of a house-to-house canvass of 800,000 lamdies in 84 cities and 23 rural areas. The study was confined to cases re sulting in disability of seven days or more. In the report of the survey home accidents were classified by means of injury, age, sex, family income groups, and nature of injury. The report contains similar analyses of other types of accidents dent be classified?" A Study by Metropolitan Nurse* In addition to collecting accident data, the visiting nurse is In an excellent position feu influence safe home practices and the re moval of unsafe home conditions. In orde* further to explore the possibilities of using the visiting nurse in both of these fields of activity, the Metropolian Lite Insurance Company early in 1940 instructed its sal aried nurses throughout the United States and Canada to submit reports regarding all cases of accidental injury lor which nursing service wa* requested. Since the Company maintains 336 salaried nursing services, em ploying a staff of 678 nurses who handle more than 300,000 nursing cases m a year, The Visiting Nurse a study conducted by this staff is nation While these studies are lielpful, it is our belief that a successful preventive program necessitates a more complete and detailed study and analysis of such accidents than is now available. As an instrumentality in developing basic data essential for such an analysis, the visiting nurse has an unusual opportunity, since she is in a position to ob serve and analyze unsafe conditions and practices in the homes of the patients she is called upon to tarrsc. Ka.cd open this principle, an tadmdnl wide in area and covers a large number of individual homes. The study also includes some 35,000 rtursxng cases handled in Canada by a staff of 89 nurses. This study was undertaken for two defi nite purposes: first, to collect accurate data regarding home accidents; and, second, to stimulate nurses* interest in home safety through familiarization with such data. To launch the plan, tetters of instruction mere cst to each nurse early in 1940 and additional information was furnished through 180 29th Xationa/ Safety Congress regular supervision channel*. Xu special forms were developed for the purpose, the nurses being instructed to fanush the re* quired inform*tioo oo their regular case re ports. They were asked to report qb each case where care was ntocuitifed hgr a* sen- dental injury- They were sMCracSad a* *eport whether the injury was the MMk mi a motor vehicle; urriifiitir--1 paMfc. trjmil. or home acekfenL Only in the case of bemm awn im* i m additional data requested. Thaw wMt nature of injury, parr of fc*4r uuwid. aetion of the injured p*m, hfi mi dent, type of acodeat, m4 wbjscti mmbtmi The data wbmitled b* thr tmm m m full}' reviewed, and form kttM --mnbmt additional data vt m a Ik mm whw iwtsaiy. Aiirnk'iHiithWikia tion is prepared on a *tW i*w> ing to a number t>( m iriammU ml* classifications. This study was rammed m the ijrim of 191, and approximately two --were needed to carry oert the proper iaiwrurunsul work and to obtain oocaplcsc data. A tot analysis of accidental injuries vn prepared tor the mouth of April and, os the basis of this study, certain necwai) change* were made in the analysis form. Usmg the rc*ited forms, comparable analyses for the months of May. June, and July have been completed and a quarterly analysis prepared. For each month as well as for the quarterly period, analysis sheets have been developed sor three geographic areas, namely: the United States east of the Rockies; the Pa cific Coact and mountain states; and Can ada. A total sheet, covering all arescs lut. also been developed. In general, the study is confined to acci dental injuries sustained by industrial and itttnftednte pobcyboWers, and group certifcilAekkfi of this company. It covers cases which are of sufficient severity to require wrsof temce. Only a comparatively ft fiMhhtee* are included. Prior to July oet wadi 44 we show the number of cases MWnif burupwriinrim On the basis of tfcr July ea^vieacc, however, it is noted dot 1MiiiHbr 11 per cent of H accident mi approximately 9 per cent of the 1mm m$my cases reported required hos- a>vr<bc to the experience since this imy d rtcd, ii will wtrfuiUy bdiKk aU**i*StSy $ Lae acciJeot cists a kmA <r t total of about 6,000 a year. Since sfcyjy to date. however, covers a period of those awifhi, the results reported in this paper am only be considered as indicating ywulik trends and Ulostmtng the type of dma which will be amiable as the study c<whimis. It is soierestrag to note the dose compar ison between the percentage of home acci dent* reported in our study and the similar percentage estimated by the Matronal Safety Council For the three months covered In tins study, SO per cent of all injuries re ported. or a total of 1,572 injuries, resulted from home accidents. The National Safety Council estimates that S3 per cent of all dis abling injuries tn the United States are due to home accidents, fa (he Eastern area of the ibidted States our study shows this fig- Table I--Nature of Injury Cuts, Lacerations and Abrasions.. _ Bruises and Contusions ................... Burns and Scalds............... ................ Strains and Sprains .................. Asphyxiation*... . ..................... Poisoning . ................... ... Fractures and Dislocations. . . . horeign Bodies . Bites..................... Multiple . . ... ........ ... ... .................... Other.............. ................................ Not Specified ..................................... Eastern States 15% 18% 12% Pacific Coast & Mountain States Canada S vta 1 28% 11% 18% 13% 50% 18% 34% 1% 25% 19% M%. 1% 20% 2% 6% 5% 3% 17% 1% 5% 3% 1% 4% 2% 9% 19% 1% 1% 3% 5% 3% 4% Home Safety 381 urc at 50 per oent, m the Pacific Coast states 47 per cent, and in Canada at 58 per cent. An idea of the range of severity of eases included may be obtained from Table I. This and the five other tables to this paper are based upon a total of 1,572 injuries, of which 1.190 were reported in the Eastern scares, 280 in the Pacific Coast and moun tain states, and 102 in Canada. These figures should not be accepted as indicating relative TaMt U--Part of Body Hands and Pagers Head, Face, and Nock Leg*, Feet, and T<* Arms . Eye*-- Trent \m\ Multipit Not SptciW Eastern State* 1*% **, us 1', n ir. Pacific Coast & Mountain States Canaria Total 16% 20% % 4% 22% 21% 25% 10% >* 12% 15% 12% 32% H`.< 1% 16% S?i IS 5% iof8 is TMe III- .Action of Injured Eastern States Walking stwl Kuntunc Household Cleaning... Laundering Duties.. . . Other Household Duties. Cooking.- ... - Eating.... ... - ................... Playing.. - ........... . Tending Heating Equipment... ............ Other... ..................... ................ None or Not Specified............. .. . . 3651 5% 4% 7% 5% 2%. 22% 1% 11% 7% Pacific Coast 8k Mountain States Canada Total 32% 3% 3% 7% 3% 2% 33% 16% >? 16% 3% 9% 3% 5% 27% 2% 25% 1% 34% 35c 4% ,l c 5% 2% 2457 1% 1351 5% Table IV--Location of Accident Eastern States Living and Sleeping Quarters.............. - Dialog and Kitchen Quarters . -- .............. Bathroom .............. .......... .. - - .. Hallways, ctd.............. .............. . .. Cellar...................... .......... ... Attic------ - ---------- -- Staira or Step* - - .................... Porch. Yard, etc.. . . . .. Garage............ ..... . . Other..... ....... .............. Not Specified. - - -............ 15% 27% 3% 2% 4% 18% 28% i% 2% Pacific Coast & Mountain States Canada Total 13% 28% 2% . % 55% 3%. !% 29% .v; i% 3J c 41% 3% 2% 3% 1% 17% 1% 7% S'fc fa'e 30% r, 2% 1% 182 J9ih ,\nriijiiai Safely Canyress frequency of home accidents in the respecnvc area?, but simply as a basis (or the per* ventages in the respective columns. Considering the extensive educational ac tivities which luive been carried oat with re* *pccl to the dangers of asphyxiation due to carbon monoxide in closed garages and to improper ventilation in homes, it is interest ing that only two cases of asphyxiation were reported; likewise that only 2 per cent of the cases involved accidental poisoning Vwviher indication of the kind of injuries being experienced as a result of home acci dents can be obtained from a review ot the parts of the body injured through accidents of this nature. Table II presents the classi fication used and the percentage variation of injuries on this basis. For preventive purposes it is necessity to know what people were doing when ihev were injured. Proper emphasis then roay be given to the development of correct prac tices incident to home activities. Table III shows the percentage distribution of the Tabic V--Type of Accident Kails irom Height*. - - . Falls on Levels. .. Falling Material Handling Materials or Objects. Stepping on Object* .- Collisions with Objects, . Hoc or Burning SuWtancws. .. Electric Burn or Shuck. . . Inhaling Cat at Smoke. P'Mtrong. Sot Gas Other V-c Specified - Eastern States 12% . 3*% .. 1% ... U% 6% 12% . .. 12% - i% 6% Pacific Coast & Mountain States Canada 21% 14% . 9% 5% 16% 15% 12% 6% 6% 12% *% 2% 19% 9% 6% 5% 9% 12% 1% Total 14% 22% 2% 10% 6% 12% 13% 1% i% 1% Table VI - Objects Involved Hou:thold Furnishing* or Equipment. Floor Coverings............. . ................. -Slippery Surfaces.. ........ - _____ Toys and ptayEquipment... .. Tools and Sharp Objects.. Utensil* ... . Food .. . . ,, ... Animals, Insects, etc............................... 1 Seating Equipment, etc................. . Laundering Equipment and Mateimls. inflammable Liquids or Materials . . . Other Household Appliances------ . Plumbing Fixtures - - .- Structural Defects- . Firearms............... .. . Automobile-. , .. . Multiple, . . . Other.......... . . Xonc or Not Specified Eastern States 15% 4%. 4% 13% 7% 2% 3% 4% 4% 2% 1% 1% 1% Pacific Coast & Mountain States Canada Orr 14% 27c 37c 7% i% 3% 2% 9% 7% 1% 15% 3% 11% 6% s% 5% 6% H% 3% 3% 1% 7% 3*J-e 3% Total 13% 37 4% 4% 12% 6%, 3% 4% 4% 5% 2% 2% 1% 2% 1 Sc 1% 12% 21% 3% 29% 11% i% 19% 1%. 1% 15% 18% Home Safely m home injur,by the action of the injured at the time the accident oeeurrrd. For a proper preventive program it is alo necessary* to obtain some Information re garding the place of occutencc of home ac cidents, TaUe IV indicates the percentage of injuries by room or other location on the home premises. Considering the type of accidents (see Table V), fall* on level are outstanding with a total of 32 per cent. In the Pacific Coast area, however, this item was respon sible for only 16 per cent and in Canada only 6 per cent. I.a>U>, tlx; study included an analysis of the subjects involved In home accidents, as indicated by Table VL This survey, although incomplete and of a comparatively short duration, seems to indi cate that the public health nurse U in a po sition, because of her training and her fre quent contact with individual homes, to serve as an excellent source ot information re garding Jtomc accidental injuries. In the absence of official reporting of non-serkms home accidents, it is reasonable to suppose (hat we can look, upon the visiting nurse as aa effective instrument in the collection of data of this nature- Because ot her training in the field of prevention and because of her close educational contact with individuals in the homes site visits, she is also In an ex cellent position to utilize this experience m a useful and constructive manner for the advancement of safety. HOME SAFETY ACTIVITIES OF SELECTED NATIONAL GROUPS The American Red Cross By RICHARD W. THRUSH Assistant Director, First Aid and Life Saving, American National Red Cioss, Washington, D. C. There have beta* >afc practices wi one kind and another about the places where people live j-incc the beginning of home life--there is too clo^e a relationship between accident prevention and self-preservation for u to have been otherwise. But admitting all this, safety for the home, a* compared with indusma! safety or highway <afeiv, for tnsiance, has lagged terribly behind the improvement and the convenience* of modem home life and the ta-t moving times in which we live In fact we can well say that home safety has not only lagged bur ha* been, to a great extent, forgotten a* a definite effort while we have been busy about many other matters The first responsibility in the directum oi j-afer condition* in and about our home* and toward a better set of habits and atti tude* for accident prevention lies in the creation ot an awareness of the problem. But awareness ot accident hazard.- is only a part of the beginning. Along with a con sciousness oi what causes the accident* (which result in some 32,000 deaths in our home* each year.) must Lc dt-\eloped a determination that these accidents in a un large measure can wd shall be prevented The whole effort needs to be individu alized. The very nature our home life indicates this, Wc have no group or organ ization responsibility here as exists in in dustry* set of laws and regulations a* in dealing with traffic Those of u* who concern ourselves about this particular pliase of safety realize more and more, how* in direct and almost subtle our approach to the home must be, however well [men tioned our purpose. From the standpoint of the Red t.ro-- st Appear* that we have an opportunity and a peculiar responsibility because of the very nature of our organization >ct u|>. There are 3,700 Red Cross Chapters in the L?nited States, Frequently the) arc on a county basis, but since there arc only about 3,200 counties there arc considerably more Chapters than counties; in other worth (he Red Cross Chapters quite completely cover the entire country. i&4 ~9th A'tf/i\mtol Safety Congress Locally cho^c who arc interested in the Red Cro-:^ are interested, too, in the other worth while community activities, and by tlte same token the members of other groups program m the nature of campaign has been meant as a stepping stone to higher levels of interest and accomplishment. The emphasis is upon year-around pregram de are interested in what the Red Cross does. velopment and such seasonal hazards as Also, there are more than eight-and-a-balf need particular attention at particular times million boys and girls enrolled in the hi the year. Junior Red Cross, so that we have an alto gether natural service program relationship with the schools in particular through this medium. To assist schools and youth gioups tn their efforts a pamphlet on home and farm accident prevention is provided to teacher* and leaders. Four hundred thousand copies The accomplishments of the Red Cross of this pamphlet were distributed last year iu iU training programs related to safety as a part of definite programs developed aie rather well known. It is worthy of in or through the Chapter* Based upon the note, however, that 656,803 persons com information and the stimulation provided pleted courses in first aid and in water through the use of this material between safety last year. That means that for each nine and ten million check-lists of common working day more than two thousand cer hazards were distributed. Also 88,000 posters tificates were issued for courses that had reading, "Their Safety Depends on You," been completed in these subjects. This work were provided. in first aid and in water safety is mentioned because it does have a direct bearing upon safety at home For example, if a man is trained in first aid In an industry, he does not leave at the plant the knowledge lie fus acquired when he goes iiovne in live evening On the adult side of the program 19,000 copies- of "Group Discussion Material-- Horae and. Farm Accident Prevention" were used last year. Courses have been developed for the training of adult leaders lo earn' our program in Horae and Farm Accident Prevention, and a start has been made in But specifically the Red Cross has a program designated as Home and Fanm Accident Prevention which is designed to contribute to the efforts bong made for a more formalized presentation of this sub ject to adults in P.T.A, Granges, Service Clubs ^nd in a multitude of community groups ready-made and otherwise. * home safety. Incidentally, in linking the We have ukeu pains to provide much farm along with the hon - 4 is well lo keep publicity for both the press and the radio m mind that while, in this instance, we are and are regularly issuing a news-letter. giving thought lo an occupation, at the "Home and Farm Accident Prevention." wc t-me it *s an occupation which is more closely associated with home life than Is trite oi any other Pupation. Or to reverse the picture, the home life of a farm family >* not confined to the four walls and pos sibly a yard but includes the barn, , the orchard and everything to the far line fences More deaths occur in farming acci dents dan in any other occupation The approach to florae and farm accident prevention, as wc sec it, is through educa tion, just as this has been true in First Aid *nd vn Water 5aiet>. When wc think of education, wc think both of children and of adults. With this in mind it is our pur pose to cooperate with the scliools, with >oung people's organizations, and with any adult groups interested or who may be Interested in the problems of home safety both urban and rural. V. ^-\er there has been or is m our In addition to the material produced and provided by our own organization we dis tributed last year through our Chapters 55,000 of the Forestry Service posters, "Yours in Trust" Just recently wc have completed a series of 14 nation-wide radio broadcasts. This program, "Listen and Live," proved to be a very interesting project with a high re sponse from all sections of the country. We had excellent cooperation from a variety*' of organizations and governmental agencies in this series. All along llie Hoe we hax-e had excellent relationship with the schools. We are glad to have them understand that the Red Crms is endeavoring only to help them with a problem and with a program in which they themselves are interested. The same thing applies to the youth organizations The National Safety Council has- been most Monte Safety 185 helpful. Without the materia! they develop on house and farm accidents there wouldn't be ranch in the tray* of directional signs. We are kanung much as we go along. For Distance nothing is mate important than informed, interested and active local lead ership m this field. We know too that there is no more important place to contribute lo the individual and general morale titan through safer and consequently stronger homes. We recognize in the words of W. H. Cameron hi a recent editorial, "Wc must go at this business of safety as though it were a life-long job--which it is l" Boy Scouts of America By FRED C. MILLS Directory Health and Safety, Boy Scouts of America. New York City The borne safety program of the Boy Scoot*, of America is so completely inter woven with every other part of its health consider the growing fatality list and 1 ask myself what excuse we have for not having done more, more and still more with our and safety activities that it is difficult to separate it. for we have proceeded on the premise that each part of that program'gave support and impetus to the whole. opporttaatks. I ask myself why I see on the program today the tames of but six national organ izations making reports rather than 66 or But here arc a few- facts and points which may help >ou belter to understand oar work. We have a three part program of health and safety: I Proteciton of Scouts; 2 Education oi Scouts; 3. Service hy Scouts. Our No. t point ia protection ts the med ical examkatioa of each Scoot in order to limit his activities if accessary. This I men tion because of its irapoctaoce to every sort of accident prevention. even 666 and in all seriousness I wonder it it is to a considerable extent our fault. Where axe representatives of that roost powerful influence ia human affairs*---the efrarebo of America--many of whom and perhap* aff are interested in the temporal ax well a* the spiritual welfare oi their pc**4e. Where are the racial group reprc-cuta nm--Negroes, fafiam, Mexicans? They are counted ia tbc ttoQ of dead and injured Every Scoot gets some home safety m~ Wbetc are the representatives of Rural strucrion and every one receives first aid America in whose dwellings roost of these training as a port of hts advancement pro home accidents occur ? Why are not the gram to First Class rating. rrpwxmtaiiTc* of the Farm Bureau, the 4-H From there on op a knowledge of it is Clubs and the Granges here? mandatory. And (be fraternal and Yoking Women's- In 1939, 101,600 Merit Bodges were amt Young Men's organizations? Where are earned by Scouts in the following subjects, they? all of which lave to do to a very great ex Perhaps oar ocganizatkfO with its great tent with home safety, eras mefodmg influence among these other organizations Marksmanship, a major portion of which is has somehow failed to stimulate their in safety with firearms ut and out of the terest. Certainly there has been a "failure house: Firemraship, First Aid, Marksman somewhere. They are not here but they ship^ Safety. should be. The help of every single group is Besides these, bat very closely related to needed. What is the smsurer? them, are the Personal and Public Health. I wish to submit to the Home Safety Com Skiin# and Swimming Merit Badges of mittee of the National Safety Council the which 88,500 were earned in 1939. recommendation that the following informa While I take pride in this report because ,, tion be made available for the guidance of of the fine work done by the Scouts who those organizations who cooperate in this acquired those skills and the leaders who effort * taught them, I feel very humble when I 1. A definition of the home as it !m to- 180 - W/i Xalional Safety Congress do with safety; Does it mean the house in which we live or the house and yard, out building* and hams or perhaps the whole farm property, or does it mean the neigh borhood surrounding the house? 2 A breakdown of accidents into kinds and then into causes in so far as they are known. 3- An apportionment of work to various cooperative organizations. Of course there will be overlapping of effort, but that can be constructively coordinated if we talk the same language and teach the same methods and strive for the same common end. Home Safety Program of the United States Housing Authority By HOWARD U WHITE Management Review Division, United States Houaing Authority, Washington, D. C. Effective safety standards m project de sign and management are prerequisites of good public housing. This statement briefly a-um-i up the attitude of the United States Housing Amliority toward ihc question of -hiciv in iu jtrefent large-scale slum clear.uKv -tml rtjiuusvng program l sHlcr thi program )93 local)}' appointed authorities hate or arc now dc- 407 projects of 134,209 homes. i.'usilru*"!ton has started on 276 projects of which 7~ projects, totaling 29,559, homes, .ire either occupied or about lo be tmanleth U addition, 49 projects formerly con -sirend by the PWA Housing Divi*km awl w-, under the general jurisdiction ot the L;m*uI Slate- Housing Anihoritv, are in jperatin-n The !<,[> rtrfOid of public in In* United Stales lias Ewen exceptional!} favorable On cite basis of one and one-hali > w.r* ui accident experience, rate reductions i 08 jH.r cent on liability coverage and 59 pvi an t>n fire coverage were allowed on blanket policies for 44 occupied projects. Thee inductions represent saving*-oyer average fire insurance costs for apartment building* and savings over original 25 per o m preferred rates on liability costs, A study of the 1939 accident records for ihc 49 PWA Housing Division Projects tncki CSHA jurisdiciifn indicates, howvci, that th-.rc are greut opportunities for ninUr rcduving accident hazards in the iuv.-n.nt housing field. These projects ln'ii-ed 0^.925 people during the vvar Their accident reports list one fatality and a total ui ;qiruxiuiairiy 129 accidents and 61 fires resulting in injuries and/or property damage within project boundaries An analysis of rm; indicates that 40 of the accidents and 36 of the fires might have been prevented |jy safer planning and designing We realize that as more projects arc completed and occupied live problem of safety for tenants and operating personnel becomes relatively mure important. In addi tion to humanitarian consideration^ eco nomise savings to tenant* which can be re alized through the elimination of accident liazard- are highly desirable. In view of the limited income of the average family in lowrent housing projects even a temporary loss of income becaujc of an accident may result in extended economic hardship. The initialion, development am! manage ment of public housing projects are vested in Local Hooting Authorities. The respon sibility of the Umted States Housing Au thority is one of a banker wSw lias loaned money and wishes to protect hi* invest ment. In protecting thi* investment the United States Housing Authoritv ha* found it necessary to set certain standard* and policies with which local amiiorities arc ex pected to contorm. It is through thc.-e pol icies and standards, as well a> through ad vice and counsel, that we are able through our dealings with local housing authorities to foster safety coni<Icranon We in the United State- Hounng Author ity arc concerned with hmu- safety at /wo definite stages. During the development and construction of a project we are interested in the safe design of dwellings. After the project has been completed and lias entered the management period we arc interested in conducting safety education activities and rectifying any mistakes in design which might have been overlooked during the de velopment of the project Let us fiist con sider the development or construction stage. Home Safety 187 lu cuim*cltttg with Local Housing Au thorities and in the development of written guide materials, the United States Housing Authority ha* made a special effort to con*dvr safety in the design of housing proj ects. These roan?" separate recommendations apjvcanng in specifications and bulletins not specifically concerned with safety have re cently been brought together in a document entitled `"Planning for Safciv " Design $ugge-tion- which have evolved from the operating experiences of our earlier projects have also hem included Of the man} design factors which we have ennridcrcd important to safe construction and operation, only those pertaining directly tr home safety will be of interest to this group Some of the more important of these are as follow*; 1. Locating residential buddings so that fit st floor levels are approximately 14 inche* above grade in Older to avoid tmes>vmial outside steps at entrances. 2. Providing adequate dwelling unit stor age facilities to minimize the necessity of "Mriiig to>s. equipment, tools and items invdvtng a fire hazard in hazardous localises. S Eliminating elevated porches wherever possible, and when they arc used, providing high ratlings of safe design with toe boards. 4 Constructing entrance platforms with non--s-lip finishes, and with ratlings wherever ~uch platforms are raised. 5 Avoiding the use of glass panels in the Umcr portion^ and in the pushing areas of donr. 6 Avrmhnr he location of doors too elte to stair* 7. Providing welt secured screens. 8. Requiring window' iUs at Jca-:t 32 incites above floor level. 9. Using straight stair run* whenever pos sible, with rij-cr* and treads meeting accept able -atety standards. 10 Constructing cojUisiuuuh band rails for each stair nut, designed to prevent children from -queezing through. 11 Providing non-slip floor surfacing 12. Installing lathtub* with flat, antiskid Inutorm 13. Providing j^rab bar* in cosnb^.*noti with oa.p dihi*: for bathtub-: and dinner 14. Ilocating utility closets for stonng medicine out of reach of miuII chifdtcu, and wherever possible providing a lock 15. luxating cooking stoves at least one foot from jambs of windows. Ranges with open flame burners should be located so that flames will not be subject to draft'- or in the path of blowing curtains. 16. Selecting a type of range with oven and broiler raised to a level which mini mizes dangers of stooping and lifting hearv hot objects, 17. Avoiding low tv pcs of hot plates on which skirts may catch fire. 18. Locating electric ice boxes and other electrical equipment far enough from the sink so that their handles cannot be grasped conveniently while touching faucets or sink. 19. Providing adequate and convenient shelving, most of which can be reached without climbing on chairs or Udders, and avoiding shelving above cooking ranges. 20. Locating elretriral switches and pull cords in bathrooms and kitchens away from plumbing appliances to minimize the possi bility of simultaneously grasping two fix tures which may, in the case of a faulty* electrical connection, complete an electrical circuit and produce a shock ui burn*. 21. Providing adequate lighting u all rooms with switches placed so a* to enable persons to turn on lights before aUerimg. 22. Providing adequate lighting for dwell ing Unit stairways so as to minimize shadows during descent, with threv-way switclies lo cated both at t/ie bottom and top of stairwavs. 23 Designing all electrical work in ac cordance with the Xaticnal Electrical Code and using only tho/c materials approved by the Underwriters' Laboratories, Inc. The factors which 1 have just enumerated are indicative of the consideration engineers and architect* concerned with the develop ment of USHA-aided projects are giving to the improvement of safety in the homc- After every reasonable effort is made in designing a project to eliminate safety haz ards, it then becomes the rftp<insih4lity of the housing manager to reduce hazards through safe maintenance and operation, However, we realize that only pan of the liarards may be met through the direct ac tion of management The others are due to human factors beyond direct control- Ten ants engaged in the activities of daily life irr 29th National Safety Congress in ihcr own hwr*s are subject to a wide range of hazaids. The only control Is through the tenants themselves. For this reason management can make only an in* direct approach, and this can best he done through a program of safety education. As a part of Us community relations pro gram, the United States Housing Authority is concerned with the stimulation of safety education activities in local housing projects. These activities have developed differently in various iocalilies. Some project managers have incorporated home safety hints and suggestions in hand* books prepared for and distributed to new tenants as they move into their new hemes. In a few cases, mimeographed bulletins have been nvd to supplement handbooks. Local chapters of the American Red Cross have been very cooperative and helpful in supplying teachers and educational materials for firvt-ald and safety courses m a number of our projects Social and recreational rooms provided in community buildings and in other parts of the projects have been used tor class purposes. These courses have been conducted primarily for project ten ant**, although some have been designed for project maintenance personnel Project newspapers sponsored b> tenant organizations or by other tenant groaps have been instrumental in spreading information ou home safety. Very few of these publica tions, however, have emphasized this type of material. One of the problems peculiar to low-cost housing is the presence of a large propor tion of new tenants who are unfamiliar with the uve of stoves, refrigerators, and other equipment provided In their new homes. Recognizing this problem, the management staffs of most projects bate provided indi vidual instruction or group instruction on the safe use of equipment. This instruction is usually provided when the family moves in or soon after. Aware of the need for a well-planned program of safety education, the United States Housing Authority has been working with the New York University Center far Safet> Education on the development of safety* education materials and a course outline which wilt be made araDable to local housing authorities some tune In the future. The major portion of this material will he concerned with borne safety. National Congress of Parents and Teachers By MARIAN TELFORD National Chairman, Committee on Safety; Director, Traffic Safety Education Project, National Congress of Parents arid Teaeben; Director, Education Division, National Safety Council The National Safety Committee of the National Congress of Parents and Teachers was organized approximately twentv-eight years ago. Since its inception the Committee has assembled information on the home ac cident problem. It has distributed home <afelv tests, home inspection blanks, and other materials. As early* as 1928 it de voted one part of a three-part survey to home accidents School and community Iiazards were also -urveved at the same time Two phases of the present program will lie discussed in this brief report. Earlier this fall the National Board of Managers of the National Congress voted to include the subject "Housing" on the Na tional Study Program. Perhaps there arc some people who think of housing m terms of the Federal Housing Authority. We pro pose to make a study of the general subject. The - >*k of the particular governmental agency in this held will be iaaddentaJ. We conducted last year a family accident survey Five thousand families containing at least one Individual bolding a member ship in a local Parent-Teacher Association participated in a three-month study of home accidents The purpose of the study was to tlerermme how the accident problem, widely recognized as a tremendous social problem, actually affects the families of representative Parent-Teacher members. Every state m the union participated in this study. Parent-teacher leaders feel they can now Home Safety 18* concentrate their safety efforts on specific problems kaowa to be the problems of the families represented by memberships in lo cal parent-teacher associations. For example. the survey showed that among parent-kachcr families home acci dents ak>oe exceed in number automobile, bicycle, public and occupational accidents combined. Falls and boras were the most common type of home accidents reported. Public accidents--accidents occurring is public places bat not involving automobiles --ranked second in importance on the basis of frequency*. School and city playground, roads and highways, public parks, yes, even church basements were the locations of these accidents 1 Automobile accidents were reported only about one-third a frequently a* public ac cidents, about one-sixth as often as injuries occurring at home. However, accidents re sulting from the careless use of automobile* were far more serious time tliosc of am other type. The only fatalities reported dur ing ihe three-month period resulted front automobile accidents. Almost as many families were affected by injuries occurring to individuals at work as were Involved in autoasob&e accidents. The relative importance of the occupational accident problem came as a surprise to state and national parent-teacher leaders The long established safety program of the Na tional Congress of Parents and Teachers has rarely, if ever, included any reference to technique* of occupational accident preven tion. This apparent gap in the program is now under consideration. Reports received during the survey have been reviewed from many angles. Following tabulation by major classification of acci dent types--homo, public (not motor vehicle). motor vehicle and occupational---report* were scrutinized far additional information of value in the development of a safety pro gram. When did the accident occur? Who was injured? These and other questions were asked. About 75 per cent of the accidents re ported occurred between noon and 8 o'clock m the evening. Bicycle accidents were con centrated in an even shorter period, two* thirds of these haring happened between 3 o'clock in the afternoon and 7:30 in the evening. Saturday and Sunday were free from occupational accidents, but with this single exception accidents were reported with about the same degree of frequency throughout the entire week. The age and sex of individuals injured throws further light on the problem. In fants. youth, middle-aged and the aged--all of these suffered in home accidents, with burns appearing to be particularly haz ardous to Infants and falls to the aged. Youth of approximately high school and college age were involved in the majority of pobhe-not-rootor vehicle accidents, while their younger brothers and sisters of tic roentary and high school age were injured whBe riding bicycles. Boys and men were injured far more frequently than women and girls, except n those accident*- occur ring at home. Additional sources of data, such reports of health, motor vehicle and police depart ments. are being utilized by paTcnt-tcacher leaders in planning future program**. We have been interested in the wide spread expression of interest in this survey. Requests for copies of the materials used have been received from seven national or ganizations, 31 states and groups of various kinds, and five Central and South American countries The home safety activities and materials of the Camp Fire Girls were described by Mrs. W. T. Gtable. Executive Secretary', Chicago Council, Camp Fire Girls, Inc. A similar presentation in regard P the activities and materials of the Girl Scouts. was made by Rosabel Burch, Program Division. Girl Scoots, Inc., New York City Demonstration Meeting, Horae Safety Committee, Minnesota Safety Council Presiding, A. V. Robwlo&r, Superintendent of Safety and Welfare, Duluth, Mi*sabc and Iron Range Railway Co. Duluth, Mum.; Vice-President for Home Safety, National Safety Council. 190 2$th National Safety Congress Home Safety Panel The home safety panel was presented by members of the Home Safety Section of the Minnesota Safety Council Panel par ticipants were. Mrs. H. W. Brodt, Home and Community Qiairman, Minn. Farm Bureau Federation, Fairmont i William H. Brown, Director of Safety, Northern States Power Co., Minne apolis; R- A. Jakoubek, Field Rcprcscnlaiivts American Red Cross, St. Louts, Mo.; C. H Zealand, Executive Secretary, Min nesota Safety Council, Sr. Paul; Dr. R. M. Bums, Chairman. Radio Committee, Minne sota State Medical Assn., St. Paul; Mrs. Ada LaPachek, Chairman, Worthington Safety Council, Worthington; Frank C. Berry, Executive Manager, Hennepin County Safety Council, Minneapolis; Theodore F. Wold, Director, Hotel & Restaurant Insp. Div,, Minnesota Department of Health, Si Paul; Ralph A. Ro-hweder, Assistant Sec retary, Minnesota Safety Council, St. Paul f Panel leader). AIK. R\LPH ROHWEDER: A most logical starting place for this exposition of die Minnesota Home Safety Program is aa explanation of the principles that guide our aviivities, MR. ZEALAND The bwvic procedure m dee prevention ot home accidents if the -ame as for other safety work m that we attempt to guide activities by the lessons ot accident experience First, we systemat ically record tfvc mdtwdtml fact* about accident*-. We uamtnarhse these facts and <li-*cmcr that hundred* and thousand* #t accidents arc tl product of relatively k dangcrem act*, a few improper designs. \V then effect changes in terimSqoe*, pdrsi and designs hr every means at hand, through every interested agency. .MR. WOLD: Tbeic arc two parts 10 the .loader;! investigation Job being dooc by the Mmncsou Department of Health. The first ts a follow up inquiry into fatal aictdcnu*. Our Bureau o Vital Statistics queries the attending physician or informant lif ted on the death certificate of every* borne or farm accident victim. For brevity, spe cial forms, identified by color, are used for earn type of accident. The second part of our accident mvesti rumn work is comprised of sampling studies of non-fatal injuries. We have started this type of investigation in Olm sted County, the location of the famed Mayo Clinic. Tl>crc, every accidental itijur> treated by a physician is reported to the dis trict health officer. The health officer send* a detailed accident report form to the vie tim to leam causal facts. During the first two months of operation 227 home and farm accidents were reported in this county of only 35,500 population. If the experience in OIm*tcd County is typical, there arc 72,000 home and farm accident victims treated every' year by Minnesota physicians. MR. ROHWEDER: And at that rale there would be `4.-164,000 home and farm accident victims treated by physicians every >ear in the United States. The facts un covered in accident studies take many forms One of the most obvious uses is a list of hazards for use in "jdf-in*pccton" camjaigm. . MRS, BRODT; Until recently, nearly every organizelice working for safer homes m Minnesota bad its own home hazards check list. Inevitably some homes were checked again and again white others were completely missed. The forms varied as to joints covered. Few made definite sugges tion* for the etunluacioo of listed hazards. So we combined and refined the best points of the various forms, added oew ones, and produced a new home inspection form for housewives It is available to every rganuaJK*i m Minooca. MR ROHWEDER I have noikvd that a number of Ibe qcroon*; m am check ?i<! euoecm gat and tJcctnc appliance* and their fillings. It seems so me that a direct ap proach is through the manufacturers and `upplxTs of these material*. MR. BROWN: Ga* and electricity are really afe because the ujpplirrs of the*c form* of energy takr elaborate pre- cautious an their distribution The voltage <! your houe arettrt, toe instance, repre sent* a balance between uictj oa one hand and tr*omi-*aco efficiency on the other. For another example, odorless natural gas is highly perfumed to inform cu-iomers of leaks. Minor service work i> afforded free by the as&bcty companies. For instance, ranges will be properly adjusted to prevent the frecta* of carbon moooride. Home Safety 191 lu Minnesota several companie- . .e sup pling educational safety material to schools, scout troops and other organizations. Meter readers offer occasional safety suggestions. DR. BURNS: Additional cooperation must come from builders. Perfectly afe heating plants are possible. At least a part of the auto garage hazard can be eliminated in design. And these are not the only acci dent possibilities that can be eliminated by an engineering approach. The United States Housing Authority and the American Pub lic Health Association have publications containing standards of safe design for builder*. The Safety Council is attempting to supply educational material of this sort to every- architect, contractor, building tradesman, building supply man, realtor and borne buyer. A brief list of safety pointers lor builders and buyers is in preparation. MU BROWN: The enforcement of safety standards for housing units and fur nishings is accomplished in three ways. The first is governmental regulation. The most important things to remember about coded regulations are lhait they must be liberal to encourage building; their specifications must he flexible to allow for technical progress; and adequate provision must be made for administration. The last point can be strengthened by a question. How many of you even know what agency or agencies ad minister bouring regulations in your com rwunity' A second variety of regulation is imposed by financing agencies that refuse a loan upon any structure not meeting their speci fications. Home loan executives m Minne apolis inform me that safety and utility are parallel considerations m tbeir Inspection program. The third type of enforcement is the tv pc administered by testing and approving agen cies which owe most of their power to pub lic respect. One such agency is the Under writers* Laboratories. AIR. WOLD: The Hotel and Restaurant inspection Division of the Minnesota De partment of Health has authority to require certain types of fire escape installations on hotels, lodging houses, and resorts. In some cases it is necessary that our Division ob tain the cooperation of the State Fire Mar shal's office In enforcing compliance with proper fire escape regulations, such as in combination hold ar.d apirtmcnt bous-c.*. where part of the building i& subject to our regulations and the balance under oilier law enforcement agencies. The State Industrial Commission can inspect hotels aud apart ment houses for the safety of employees. Nevertheless, for all this authority, the onl> city in Minnesota in which every dwelling i> regularly Inspected is St Paul--and St. Paul, which is one of the oldest cities, hav ing many apartment house*, hotels, and mul tiple dwellings, by its nature highly sus ceptible to fires, has the seventh best safety record in the country. MR- BERRV: Even without official home inspection. Minneapolis won an award in the U. S,, Chamber of Commerce Fire Waste Content Iasi year, and \vc are now working for borne Inspection. Many of our home safety* activities arc conducted by vol unteer group*; The Minneapolis Bo> Scouts distribute safety literature and maintain hy drants free of snow. The Girl Scouts con duct a home hazard removal project. The Campfire Girls learn how to live safely as part of `living efficiently." A pla> ground organization, "The Knights of Safety," pro vides safety training primarily through an advancement program. MRS. BRODT: Minnesota dubs incor porate both safety projects and safety ac tivities in thrir program Altogether, 35,250 club inembo* representing every count}' in the slate took safety last year That is. three-fourths of the total 4-H membership Typical of their activities were the 45 safeiv demonstrations at la.*? year's state fair and the more than 200 safety dcmon-tiaiiom a: county fairs MR, IAK.OLBEK: The Campfire Guls during the pa-st >ear Itavc national!} cele brated and worked out their birthday project entitled "Skillful Living." Tle Min nesota girls selected two activities: "Safety Through Home Handicraft Project**' and "Safety Through Knowledge of Contribut ing Muniripal Agencies," Under the first heading the girls studied ami recisfidd haz ardous condition-* amend their homes by a direct contribution of such thing- a* safe knife iiolders, hot pads, securing rug.* and mam other handicraft projects too numer ous to mention. They also studied, under the direction of experts from public service agencies, the pioper care and u.**e oi elec trical appliances, gas equipment and water facilities. Knowledge of fus-e boxes, gas t-hutoffs and similar pomt- trc di*cu.$cd 102 29th A tstwmxf Safety Congress and proina usage demonstrated and prac ticed. The girls also arranged for exhibit*, talks and demonstration* to adult groups. In the second classification of effort toward "Skillful Living," the girls surveyed, under guidance and in groups, various pub lic service agencies to learn first Hand about the manufacture Slid use of the products of iltesc agencies. Hoy Scouts developed their contribution toward the safety of Minnesota primarily through the merit badge program. Nearly 5,000 awards of this nature were issued in the ia** year on topic* covering or closely allied to safety. Added to this effort were numerous pub lic service activities. The sale of 30,000 "GO-FOR-SAFETY" embhau to tins citi zens of Minnesota to awaken and create mterm in safety wa> one. Distribution of Red Cross Home and Farm Accident Pre vention posttar:, and Fire Prevention Week potters was another. A home check list for individual home inventory of hazards and a check of hazards at troop meeting places developed much interest among' the boys. Parades and demonstrations carried the hoys' efforts to the attention of adults, and mam fathers received valuable information from their sons when tl>e boys conducted a firearms safety program for luncheon acid uncial groups composed of men. The Girl Scouts work on projects related i*> their homes and environments and create exhibits and displays, MRS LaPACHEK; The Family Accident Sur\cy of the National Congress of Parents and Teachers was a Itomc safety activity. 1` T V meetings everywhere in Minnesota arc often devoted to safety. Lately the de mand has been particularly for home safety speakers, home safety movies and' home .safety literature. The Federated Women's Clubs are pro moting home safety*. Tn Redwood Kills every club devotee 15 minutes of every meet ing to Itomc safety. Tn Duluth, a club con ducts a home safety snapshot contest. The Federation's State Fair booth was partly devoted to home safety The Federation's convention program includes home safety. The American Legion Auxiliary devoted a convention session to home safety. The Minnesota Home Economics Associa tion devoted convention time to home safety. Two safety session* are in the Minnesota Education Association's convention calendar. The Public Health Nurses* Conference at the University last spring took place amid home safety posters, literature and exhibits. MR. JAKOUBEK: The 89 Minnesota Red Cross Chapters during (lie past year have pushed forward in home safety through a number of channels. Forty-eight chapters have organized to bring to the public, through the Red Cross Home ami Farm Accident Prevention Program, home check fists, group discussions, tcacliers* manuals, posters, plays, radio and news publicity a< well as direct contact on localized and spe cial hazards. Through First Aid, 75 per cent of which has direct bearing on accident prevention. Minnesota's Red Cross Chapters instructed 10^40 persons in 1939-1940. DR. BURNS: In the schools a committee of home economics teachers las met and dis cussed means of injecting principles of safety Into home economics courses. They decided that three operations were neces sary*. (1) Revision of present curriculum outlines; (2) Supplying pertinent material; and (3) Goarinring and training teachers. With the University of Minnesota, Min nesota Department of Education and the Minnesota Education Association doing the theorizing and the St. Paul schools tine ex perimenting a revised home economic* cur riculum wiM be devised. MRS. BRODT: Tlie women's division of the Minnesota Farm Bureau has adopted a safety program. Incidental to this every* liootc and commun'd) chairman ita* received fd) material including a copy of "Safety for Minnesota Homes" which is essentially a program outline. The result, briefly, i this: 33,565 farm women, representing that number of farm families are engaged iu safety work. MR. ZEALAND- The Minnesota Inter community Home Safety Contest serves two purposes. It arouses civic concern for the home accident problem and it serves to de velop standards of community activity for the prevention of these mishaps. The contest is a matching of home acci dent records by population rates and com munity home accident prevention efforts. Towns and cities compete m 4 groups ac cording to population. ADJOURNMENT Safety Exposition Exhibitors EXHIBITION HALL--STEVENS HOTEL Alphabetical Lhi of Exhibitors of Public Safety Equipment Arntzen, Inc., Chicago. III. Emergency Ambulances and Stretcher Equipment- Bear Mfg Co., Rock Island, HI. Vehicle Inspection Equipment. The Bridgeport Device Co., Bridgeport. Conn, Gra> Tom Traction Splint*. Eagle Signal Corp,, Moline, 111. . Traffic Signals and Controllers1.. Eastman Kodak Co., Rochester, K, Y. Cameras for Police Use. Employers Mama] Liability Insurance Co., Wausau, Wis. Workmen's Compensation. Fine and Casually Insurance. The General Fire Truck Corp., Detroit, Mich. Fire Extinguishers and Allied Product* Harlcy-Davidson Motor Co., Milwaukee, Wis. Police Motorcycles, Scrvi-Cars and Accc**onc.-. Heaney Motor Cq,, Freeport, III. Ambulance*. Hoof Products Co.. Chicago, III. Motor Vehicle Speed Control Governors ami Brake Eyes. Indian Motocycle Co., Springfield, Mass. . Police Motorcycles and Equipment. International Business Machines Corp,, New York, N. Y. Accountmg Machines and Systems for Municipalities. International Cbm A Manufacturing Co., York, Pa- Lug-Reinforced Tire Chains. . Lumbermen's Mutual Casualty Co., Chicago, 111. Automobile, Compensation and General Casually Insurance. Medical Specialties Co., Indianapolis, Ind. The Harper Drtmkomcter. Metropolitan Life Insoraace Co,, New York, N. Y. Life, Health, Accident, Pension and Group Insurance, The National Conservation Bureau, New York, N. Y. i The Accident Control Program of the Slock Casualty Insurance Companies. The National Safety Council, Inc., Chicago, 111. Potters, Bureau of Information, Research and Education Division. Sarra. Inc., Chicago, 111. Slide Films. Photosound. 193 HM 29lk XalianaI Safely Congress E, D. Sawyer, Chicago, 111. Yielding Cable Barrier Gate?. Stonehouse Signs, Inc., Denver, Colo. \ccwkm Prevention Signs. Reflecting Signs Talking Sales Picture*. Inc., Chicago, 111. Film Strips. Slide Film*. Sound Movies. Traffic Rye, Inc., Indianapolis, Ind. Vehicle Speed Control Devices. U. S. Junior Chamber of Commerce, Chicago, IlL Educational Campaign for Traffic Safety Lighting. Weaver Mfg. C,,( Springfield, III, Vehicle Inspection Equipment. Welabach Traffic Signal Co.. Chicago. 111. Power and Battery Operated Flashing Traffic Sijjrods. INDEX A Ae >jen( Suiio^ .ttchlrot and AnalM < Scheffer*. IW tU. ^ I'm of SutiMK* hi Tablet Safety Edutaiion (Vauukanl. ffJ-54. Akebe): Report of (VMawntcee on Tot, for Irism teuton (Surer*. 27 2'V .\n-1;r*A. .N : Child and Street ,Vcrt* dent*. .^rm4rftftr. lit. I) 0 Home Atiwlfiu*--Where. How twi SVbj 1-*# pt B Bsnofi. it.. M*Mt "Vr*&* (rmtiiian. aiuj Tr,nMnaiii Safety. W'KI. Rentier. (,. li : Bmhms Aeird* and Penalties. 117-1 IS Beuflcu, R.- O.: Rc^*m ef Cwuntitcc cm Bicycle Problem*. I6.f. Bererfoedcn, P T Mi k Coordination os Tndhe Enforcement Actmite*. 17 2, Rmtln: Ret*on rf CoviRHttte m Bicycle P/h Irnt 14'. BmIv, T. \ : PrMtktl Pnir.rii Cnfarcr menl in States V*rl Borna* Plan* See Reward*. Brute, Ideut Coh A I* : lntete*t and Plan* el tChoentWrola. ri Dttnttmrnt t* in Relation to Traffic Bum*. (! >t The (''ustmumj Salci> louAcil. 29-2.1 . Se and !*non^. Motor Vehicle*; Tta*i*t Imluoir} Bu-*. C. II : Ker*t Atd. Rnad Tnihne anti Check inn. 123 124. Byms M. F tTu| ,\li*Wlmi awl Seteri Acci- kill*. H7-1W c Cal'lwtll, B K : fmin.il fc*lcifian Enforcement in Citir*. 71-74 kamc1r2en. VV. J.t The Moltra "CaJc *f Honor.** Child Education: Am4>mijc ihe Tlieonr* of Safest Education IhiwtiW. IfeO-26> Problem of Teacher Education am) Safety (Wahtmmc), I `2-1 *6 Student Paruapanon m (fee Production *f Y*~ ual Aid* nd Radio Fretruu. Dbcmirn, 159 MO. fcthotqwes for DcTrlepuie and tniullioB a Program el 5if(l) Education (Reavii), *42- 144. Trnuluine Safes* Concept* im Action (Rile*). 129-142 ' Child Education Section: Minuses. 129-175, Officer*, 129. Joint Meeting with Home Safety Cotueutiee.. I77-IV5. Joint Session with "Street and Highway Traffic Section, 165 175. Child Safely: Child .MIiIkIiitwi and Accident* , (Kreh). 169-170. Child Misbehavior and Street Accidents (Ander son), 166-167. Child Misbehavior and Street Accidents (Byros), 167 169. thiUl Misbehavior and force* Accidents {Mc Cracken*. !7t 172. Child MiiWludot and Sireet Accident* {Roth*. 172-175. Teacher Lil*tity-for Pupil Injsine* rHuhSar4>. 144-151. Sec al*o School Satctv Patrol*. 1'ilf and Slate Police Somik 14-20. t'.tty and Slat-- Pnlice* J*wrt 'woion with Tafh- Court Itadec* and l*ro*eeutor. 4k 5 I t lark. K. H.: How- to Orjcanirc and Carry on -i Practical Maintenance Program. lOd-tOy i oenmerriol Driver*: Sr* Driver* ami Dnvm.jj. i'ommcrcial Vehicle Secthm: Minute*. 9? 12>, Mferr*. 95-9A Kci-srt of l*nsuiirr -in Vrbtclr Mfciv Sshu- (tkxrdner*. t *v " J<HM Seruon wish Street and Highway Tiulfic and fan*n 'ctium*. (.dflunanriy Safety See Public Traffic. Street CmUfM*: Fleet Cwc-s* l Kmjn>. I bl 1.?! .Natrona! Fleet Safety Catr*t. `rt-Hil D i>sn*ii. Indite 6 S. Kelaii^n ui 5ie IVdr*isnn and the Driver. 7-79 l>aw*on, Judge ln: Are Tr.6c Court Ca** Ehf fercul* dO Imktnwm. J. tj. ami other*; Pelcciioii. Tr.iiim and Retraining of theMhir* in Tf.w*iiria raw S<rvH,. U' tit ^ Driver* and Dftvinc: .Ae*?li>* K,jri- and Ana! rd* (Scheffer3, It: 11- . Riniue \warU sihI Prnaltir* (Bin-let' 117- * i*. The C mtmrrtal Driver*!- t ft, sent Acewlcw* PreldcJ. *>** ^>*4 ifottinwttcc to Make fn-j-ectrun* and Ivictieme Re*|Kwi*ilrtljlv (Holtkams-i. 11%-l/u lielote. Knolved shat fde-nu'e \re Wn*fft^HrneU* foe Pedestrian Accident- than Are Motor kur Iliivei*, ftl-s# tnlml Safet> RckuUiwm** (Krl!>). ?..' Fift Aid. K4il Irmlonc and (hvUi'ic =0-.i-i. 121 124. fins Conte*** (Feftw*). 1 Hh 1*5 Ikiiirk hiltit to the litm't Safe man {Haven}. DM'. .M a iu|seinri-f mI Knt<u;i*i-!!i- (*< Safety ((uailiMlIic). S 20-111 ' l*hyricl Condition and Visual Atmtv a* Fc> toe* in AccMlem* (Zetclen, Reaching (be Rural Dntrr and IV !t<-?rin lSimpon). 54 *7- Kelatiott of the Pede*trian tn.l sin- r?irrr. (llavi*on). 7.4-79 Repot! of Committee on V\ inter nrsvnu; liar ard (.Meyer), 92 94. Selection of Personnel fjne*l. 1l4-|!` * Select ton, Tramstt? anti KctraiRing ot s.lj^rator* in Trau*sM*rtaiion Service Mhrktai->oii i. l s,i. 127- Training of 1 h.-l 17 Traincnc the AdwU Httttr (McKays, at.**. E Electtic Railway*- See Truws Siil-.4*.ir>- EnfOTCcment: Aruwers to Practical Enfc>rce.-ment Questions, 74 7lk ' 196 29th National Safety Congress Are Traffic Court Cbt-c# Different? (Dawson), SO. ,, Olv and Slate Police Session*. 14-20, J53-78, IViV'^irian Enfortanent in Cities (CjJdweU), I'raium) retleuiian Enforcement in States Sriunr* foreernent to the Public (Ncj-b), 26 Should Police Caw Be Marked in a J)ttinciivr Manner? 77-7&~ _ t. , Statewide Coordination of Traffic tmorccmenc Activities (Beverfcmlcn), 17-20 Suegcs-aon* for a Radio Safety Program for Poltee Department*. 75*76. . Traffic Court Judges mini Prosecutor* SeMtonr: 15*14, 78-SL ,, Wkai's Ncw_in Traffic Law Enforcement (For- What 1* \Vronc with Traffic Law Enforcement.' (Frey), 44*40. __ . _. . What Is \Vr4t vuh Traffic la* Enforcement/ (Ingram). 41*44 What the National Unm>ucc on Traffic la* Enforcement Found (Warren'. 46-51. Engineers Se>Mon: 33-41. Exhibit*: Safety ExpoHtion Exhthtco**, 195*194.. Eyes: Pfsyrical Condition ami \ ittial Acuity a. Factors in Accident* (Zcigtcr), 12S-131. Jones. H- J.: Selection of Personnel, II*!i3. K Kelly, H- H.: Federal Safety Regulations, 126. Knoelk, \V. C*t Applying the Theories of Safety Education. 160-16x ' Kreh, E. J.: Child Mi>bdune< and Accidents, 16ri- 170. Ijur. A, R.: Vicapgim* su the EdhuaiiVn Value of School Safety Patrol*. 156*159. .. Me buns: JiwjMtrrcd Atreel lagbnog and Aendmo ( Reid). 90*9*. kejtort { Commence a Night Traffic Hazard* (Tucker). 62*05. .Luak. E. S.: The Seupoaafbthty for Safety. Ill* 111 i-eitan. M. t\mtc*t*-, 150*121. ,, Fr*ter. A- K.: What's New in Traffic La* Ee- forrrtMcnL 14*17. .. , . ^ _ Frm,. Judwc P. A.: What I* Wrong with Traffic l-aw Enforcement? 44*46, Me 5LCncLcn, D.. Cbtfd Misbehavior and Street Ac* chlents, I7M7J. . , McKay, M. V,: Training the Adult Driver, 21*54. M Gardner, D. !>.: Rci>ort of Committee on Cora' menud Vehicle Safety Flint*, 125. GasdwiHie, ll. M.r. Management*-* lu:cu*< and JRezfvon.*ihttity fr Safety. 110*111. H Harh. Judge H E.: The Meaning of Speed Law*. Harm, R. C-: Gening Safety Acrou to the Driver Sxleimaw. 101-104 ... Heudrickaun, L. E..* Using Speed Observation* m Zoning, 59-41. . .. IfoUUmu. J, IV- Oawraucc to Make inspections and Determine KepoiihrWty, llS-Ii. Horae Safe's: Demon>trat*o Meeting, Home Safety Committee. Minnesota. Safety council, Hamr Accident*--Where, How and Why? (Arn^trenit), 17J.183. ^ __ _ , .. . , Horae Safety Activities of Selected halionjl Grout*. 185*189. ,,. Home Safctj (onamtrtt Ses-moti wulr (.fetid h'ducaiWn Scctisn, 17,-1S3. Home Safmv Scsdon: 177*192. Hubbard, F. W*.: Teacher laa'ulilj for Pupil In jurie*. 144*151. i ln'.rcam. U . K.- What l- Wrung with Traffic law Enforcement? 4I-44% ,,_ .. Jiwitutr of Traffic Enymcer*: Joint Session uitn >u tci and Highway Traffic Section, 4-12. iiivr<iiKaiMn f Accident*: Commiliee to Make ItiMwctmn* and Determine Responsibility (lUItkami'i, 118*120. Management': Manaxemewt** Imcrcrt and Ropon- bvtwlisy for Safety (Goodwillve), 110-tl I. Marsh, B. W.j The Motorist Look* at the IV* destnui.9 1!. , ,,, Mcinke. A. U_: Arcc>nc* tor SoIny, 124. Mtckle. D. G.: Report of Committee on 2>peed K<ruluion, 29*55 ,,. ,, ,, MtHi, F C: Home fUfrty Activities of the Boy Scouts f America, 1I>114 _ Motony, L R.: Progr** in Lwfwm Traffic Leg Illation, 61*62. _ Motor Vehicle*: Accessories for Safety (Meialcc). 124. How to Organize aad Cany oo a Practical Maintenance Program (QjfM, 100-199. Moyer. (L A.: Report of Conunuttee e winter Driving Hazards, 95*94. Mueller, H. I-: Orn^ntitm * the State Safety Council for Traffic Safety* 2J-2J N National Defense: Interest and Plan* of the War Department in Relation to Traffic Control (Bruce), 4-6. National Fleet Safety Contest: Awards, 99*195* Nawmoff, M. M : The ProWetn of the Adah Pc detman, 57*60-- , ,, ... .. Ncn, E.: SclKng Enforcesocne to the Pootie, J4 P J'etle.-ttoans: Debate: Resolrcd that Pcdemao Are More R^oiuiUr for Pedestrian Acodents than Are Motor Car Driver*. 64-68. The Motorist Looks at die Pedestrian (Marsh). 9-12. I Milex 197 Practical Pedeurum Enforcement in Cities (Cald well). 71-74. m Practical Rcikfiruo EnfoSinnent m States (Boate). 68*71. ? . The iVoMem of the Adult Pedestrian (Naw moffi. ;7-6Qi Keaching the Rural Driver and PtdeMrlan {^>|V<**n > Relation of tie Pede-triaw an*l rfie Driver (IhviiMin). _ Report of Comnnitce on Pedestrian Control and Protection (5ren*o. 8. Phystral Ihfetn: Physical Condition and Visual Acuiii a.% Factors in Accident* (Zeiglet). 129* 155. Police: Matmaioing Interest of Police in Traffic Safety Idea Exchange. 20. See alvu Enfsttemem. * PreMe, T. !.: The Comraereial Hriver'? tunt to Prevent Accukim, 96-99 Puhlw Ertucation Sevrion: 51-60. n Oii*or_ Ptfhiie EJneaOsn and Safety Oreantratio.-j .Ses* ion- 20*25 I'wUsc Lliwstmi sal Traffic Engineering S*rien- 81*87 l*ublK Safety. The Communal} Safety Council { Bam'*). 20-72. lfow a Stare Dciartmerit Can Help 1-ueal Com murane* (Towers*. 84*87. (*<,( >iaix*r>c* m E*aMsc Safety Exlmathm _ (\aochzn). jt?Ji* ' See lw Pe4e*rr*an*; Street Traffic. H Kadte Musr-tiuti- fwr a Ratio Safety I'aoyi-in foe Pnftec Deyaranent-. 75-70. Rein*. <7 H Tctkugtm for Dcvetof'ing and In4zUicm: a frocram of Safety E<1ucattm. Mi las Reid. K. M Icijwoved Street Lighting and Acci dent*. 092 Ref*oft-ihdt> The Re*i*on-ib3it} for Safetv (Iaa-4.). 1IM12 Rewards* ffion*. Aar*l- and I'tnnilK* (BemSen. 1I7*(1S. .Vuisniil Fleet Safety <.At<t Award*.. `W.joi. Riles. I. A.. Tran-dan eg Safety Conceit into Action. 159-145 ___ Kebm*oo. R. \V. * The Traffic Safety Comsm-sien. Roth. Cu< A V.' t.`)rW Uidrlunee and -Street AeeiTH-. 175-17?. s Scheffer. H I) - ,\erdent 112*114. and Srhool Safety Patrols: Viewpoint!* m the Educa- tton Value of School Safety Patrolt fLautr), 156*159. NopuMi, H B-; Reaching the Rural Driver and Pedestrian. 54 *7. S-unpsoti. H. S.: Cwfctatioo of Traffic Engineer* with Transit ad Eofwccincat Official*. 56*18. Snenico. L. J.: Xciori of Committee on Pedes trian Control and Protection. 8. SpcejD The Meaning of Speed Law* (Haro i. 30 Rejwn f Committee* on Speed Rerrutatton (JlicUes. 29 55. l*Hnr Speed Obaenratienn in Zoning (Hendrick* m). 59*41. Stiver, I). F-: Rqon of Committee on Test* f&r Intoxication, 27-29 Street and Highway Traffic Section: Minuter, 5-94. Officer*, 5-4. Report f Committee on Bicycle Problem.* (Ben nett). 165. * Kcpon of Committee on Night Traffic Harard- (Tucket), 62*65. Report of Committee on l'tle*unn Control and Protection (Sorenson). 4. Kenon of Committee on Speed ResiaDrion (Mickle l, 29-35. , Keion of Committee on Tet* for lnioiicUMHi (Stiver) 37-29 Rejmn of Committee **n Wmtrr IVirrnt Uii- ardx (Meyrr). 91 0l Joint Sesaion with CNilcl Education and Tran-it Sccitooa. HSn-175 Joint Scsdon with Commerctal Vehicle amt Transit Sections 88-94.. Joint Sewon with Inr-titutc of Traffic Engineers. 4*1 >. Street Traffic- Answer.*- to Practical Enforcement Qiie-tions "4-78, Are Traffic Court Cax Different? (Dawsoni. 80 Child Mivbchariot ami Accklents (Kreh). 169 170, Child Misbehavior and Street Accident* tAnderMm. 166*16" Child Mishehavtar and Street Acctdecua (Bymsi. . U7-I09. Child Miel<hxviwr and Street Accident* (Me Cracken). 171-175. Child Mi*WDtir and Street Accident* (RothI, 175-174. City and State Police Sosioit!*: 14-20, 63-78. Cooperation of Traffic Engineer* with Tran**: and Enfotecraem Official* (Stmt**on), 36-38 How a State Department Can Help Local Cora- mumtir* (Tower*). 94417 im9p0ro9v2ed Streer Lirhtio^ am] Accident* (Reids Iwof.i and Plao- of the War Defsangtertt in Relation to Traffic Control (Bruce), 4*6, The Meaiung of Speed lavs (Harb), 80-SI. The Modern '"Code of Honor' (Cameron), it Organization of the State Safriy Council for Traffic Safety (MuriVer), 21-2*. Tlk- Pr.ienl Challenge of Traffic AnkheM (\\ ilHamsi, 6-7. Progress in Cniform Traffic Legislation (Mo- rony) 61*62. PuhHc Ej.|i*catioR ami Traffic Ensineering Se-- mm.: 81*87. Re[>on of Commuter on Bicycle ProMetns (Ben nett), 16* Report of Committee on Night Traffic Hazard* (Tucker). 6V65. Report of Committee on Steed Regulation (Mickle). 29 53. Report of Committee on Tets for Etuoxicratton (Sliver). 27-29. Rc|jri t Committee on Wjntei Driving liar* ard* (Mover). 93*94.. SeBing Enforcement to the Psblic (Nes), 20 Setting Traffic Engmeennig ie the ofmnumi> . (Wetzler). J4-36. Should Police Car* Re Marled m a Diitinrtivr Manner? 77*78. Statewide Coordlnxuee. of Traffic Enforcement Activities (Bevcrforden), 17-20. Street Traffic Condition* and Maz* Transporta tion Safety (Barron). 88*90. Traffic Court Judges and Prosecutor* Scaunti*: 13-14. 78*81- Tl* Traffic Safety Commu*ion (Reiiiaiani, 32- Vsing SpeetS Observations ion ., 59*41. Zoning (Heniirick* VlTiat's New in Traffic Law Enforeemen* (For* cr). l-t-17- What ! Wrong with Traffic L* EntorccraeiU? <Ftey). 44*46. What ({ Wrong with Traffic Law Enforcement? (Ingram). 41-44. What the Natioftal Commutee n Traffic LawEnforcement Found (Warren), 46-51. See aly Drivers and Dnvmg; Enforcement: Mur Vehicle*; Pedcstriaru. Struggle!. F. L: Training of Personnel, 116-117. 198 29th National Safety Congress Tv Telford, it.,. Home Safety PusKtam of tlv< N*. iiontl Cmigre?** wf Parent* and Teacher*,, ISfS- 1&9. lhi-uh. K. IS-: Hetm. Kafetv Aetitiric* of the Amcrkan Red Cross, 1&3-1&S Tower*. J. 1-: Hotr a Stale Hepat Mien! Cart Helj< Local Communities. JU.S7 Tr.affic Coitri JtwJife* and Prosecutor* Sessions: 13. 14, 78-31. Traffic Court Jutljto and l*ro>ecutor^: Joint Se* sion with City and State Police. U-.'l, Transit Industry: B* Stop*, 137-133.. ^ I)i*cu<doti of Step* on Buses and Trolley Car, 137. ,, Vhyviea) Lswtiikifl and Vual -Srvitv n F. tor* m Accultmts (Zenker), 128 u3. ^election. Tralmnp and Retraining of Operator* m TrafiMortatian Service (ijickinsia), 133 137. Traiwt Section: Joint Seskati with Child Educa tion aw! Street ami I0 17* TealBc Sect!one. Joint Seorion will* Street and Hidiway Traffic and rofmarrcial Vehicle Section*. -Mfmrre*. 127-11}*. iHRerrr 127.128. Tider. H-' Rej^rt of I'siimiiiicc on Nudit Traffic Ituariia (1-A), Vauahan. 1) V.- l.'*c af Statittie* in FWic Safety ErlitcatiiMt, 82-34. ' Visual Education: Reirt of Comnuuee on Com mercial Vetride Safely Films {Gardner), 123. W Warren. *.: VS ha* the National Vomnuttec on Traffic bw Knftjrrnsiem Found. 4->1. Wa*btmarnc. C- Problem of Teacher Education and Safety, 152-156. \Wulcr. T. E.1 SeMijiR Traffic Knftmeennf to the Community- 1436. White. H. L: Home Safety FrftiMm of t*r Vmted States llrnmnit Authority. 186-IS# Wittiamo, S. J : The Present Challcftjce oi Traffic Accident*, f-7. Winter Driving: Region of Committee m Winter fMvfmt HaiartU (Moyer!. W 94. z Zeiyltr, \V.: Phyical Con-tofton ami Vmia1 Acuity a. Factor?- in Ai4ems I2AI33,