Implementing the 1966 Highway Safety Acts

Implementing the 1966 Highway

Safety Acts

M atthew C. Sielski

Director

Office of Driving Environment Programs

Office of Highway Safety Programs Service

National Highway Safety Agency

Washington, D. C.

IN TRO D U C TIO N

The National Highway Safety Agency and the Office of Highway

Safety Programs Service function under the new Department of Trans

portation. Presently the Office of Highway Safety Programs Service is

directing its attention to the development of standards in the field of

highway safety. Some of these are of concern to highway engineers

and shall be discussed in detail in this paper.

The interest of the federal government in highway safety has been

greatly intensified following the continuous rise in automobile acci

dents. In 1962, for the first time in our history, we exceeded 40,000 fa

talities and have continued to climb to a record high of 52,500 in 1966.

Last year, the National Safety Council predicted that in the five-year

period between 1966 to 1970, 283,000 Americans will have died on

streets and highways and that by 1970 the annual death toll will rise

to 60,000.

Of further concern is the prediction for sharp increases of vehicle

usage. It is expected that the total number of vehicles in the United

States will rise from 95 million in 1966 to 108 million in 1970.

President Johnson stated that next to Vietnam, traffic accidents are

the country’s most serious problem.

CONGRESS PASSES SAFETY ACTS

In 1966 the United States Congress passed the Highway Safety Act

and the National Traffic and Motor Vehicle Safety Act to offer assist

ance to states in a cooperative effort to seek a solution to this acci

dent problem. They provide for a systematic consideration of the ways

in which safety activities, both public and private, at every level of

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government may be strengthened. They herald a new era for highway

safety in this country. The standards relating to vehicle design are

administered in the National Traffic and Motor Vehicle Safety Act.

The standards relating to highway safety programs are contained in

the Highway Safety Act, about which this paper pertains. Before dis

cussing the standards, there are several observations to be considered.

M AKING T H E SAFETY ACTS WORK

Federal-State Cooperation

First, it should be perfectly understood that if this program is to

succeed it must be a partnership between the states and the federal

government. The act recognizes the responsibility of the federal gov

ernment to give leadership and coordination to a national safety ef

fort. The act also recognizes the responsibilities of states and their

subdivisions as well as the contributions by industry, universities and

private associations. The point emphasized is that this is a national

program bringing together the many facets of all levels of govern

ment and of the private economy in a cooperative, comprehensive, bal

anced attack against one of the gravest threats to citizens.

Ample Latitude for Local Initative

The second point relates to the need for diversification between

states in meeting the requirements of the standards. The Highway

Safety Act calls for “performance” standards which therefore leaves

ample latitude for local initiative and adaptability for a creative and

effective approach. Each state can tailor its program to its own make

up and character, respecting however, the basic intent of each respec

tive performance standard.

For example, the federal government will not establish a uniform

national speed limit. The topographical characteristics of our various

regions dictates speeds that are based upon prevailing existing condi

tions and sound traffic engineering judgment. The law does require

that performance standards be established, through state regulations,

which will promote safe driving under the conditions confronting the

driver in each state.

Promotion of Fresh Approaches

The third point is perhaps the most important and challenging.

One of the main purposes of the Highway Safety Act is to promote

the development of new counter measures against accidents and their

end results. If progress is to be made towards a sensible accident pre

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vention program in today’s transportation environment, it requires a

new vigorous fresh approach, as well as a continuation of a sound bal

anced safety program based on national guidelines but tailored to fit

local conditions.

As a means for encouraging states to initiate new action, federal

matching funds have been made available. This obviously is not in

tended to cover all the costs of the expanded effort. W e appreciate

the financial burdens the states are being called upon to bear in order

to meet the cost of the safety programs which are necessary if acci

dent reduction is to be brought about in their various governmental

jurisdictions.

Summary

Re-emphasizing the three points (1) this must be a partnership ef

fort between the states and the federal government (2) there is need

for each state to expand our minimum standards to provide for local

adaptaiblity and initiative, and (3) there is need for accentuation on

programs which will provide fresh approaches.

HIG HW AY SAFETY ACT STANDARDS

The Highway Safety Act as it relates to standards for state and

local programs is now considered.

The law stipulates that:

“Each state shall have a highway safety program approved by

the Secretary, designed to reduce traffic accidents and deaths, in

juries, and property damage resulting therefrom. Such programs

shall be in accordance with uniform standards promulgated by the

Secretary. Such uniform standards shall be expressed in perform

ance criteria.”

The law further specifies, concerning the state programs, that:

“Such uniform standards shall be promulgated by the Secretary as

to improve driver performance (including, but not limited to, driver

education, driver testing to determine proficiency to operate motor

vehicles, driver examinations—both physical and mental, and driver

licensing) and to improve pedestrian performance. In addition such

uniform standards shall include, but not be limited to, provisions

for an effective record system of accidents (including injuries and

deaths resulting therefrom), accident investigations to determine

the probable causes of accidents, injuries and deaths; vehicle regis

tration, operation, and inspection; highway design and maintenance

(including lighting, markings, and surface treatment) ; traffic con-

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trol; vehicle codes and laws; surveillance of traffic for detection

and correction of high or potentially high accident locations; and

emergency services.”

On February 16, 1967, the National Highway Safety Agency an

nounced an initial set of draft standards to representatives of gover

nors of 50 states who were invited to a meeting in Washington. The

law provides for a 50-50 matching fund for the states and local com

munities to expand and improve their highway safety programs. It re

quires that at least 40 percent of such funds go to local communities,

and it poses the threat of the loss of 10 percent of federal-aid high

way construction funds for those states which fail to comply.

TH R EE OF TH E STANDARDS

Three of the initial thirteen standards are of direct interest and

are explained here.

Highway Design, Construction, and Maintenance

This standard requires that existing streets and highways be main

tained in a condition that promotes safety. It requires that moderniza

tion of existing roads, and new highways as well, meet approved safe

ty standards and that precautions be taken to protect passing motor

ists, as well as highway workers, from accident involvement at high

way construction sites.

Following are some specific features of this standard.

1. Design standards should be in accordance with AASHO’s policy

of geometric design of rural and urban roads and streets.

2. In the design of subdivisions and residential streets, travel

should be minimized for local use only.

3. Give much consideration to the use of street lighting at various

key locations, particularly on sections of roads and streets where the

ratio of night-to-day motor vehicles is more than 1.5 times the average

for similar locations or sections on the same system, of roads and

streets.

4. A skid prevention program not only for new pavement design

but including resurfacing projects.

5. A planned program for construction site safety, providing for

proper traffic control, devices, detours and the removal of temporary

pavement markings and signs when they no longer apply.

6. A planned program of routine and preventive maintenance of

the roadway to provide safe and efficient movement of traffic. This

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standard also calls for a continuous program to detect and correct

deficiencies in roadway locations and devices before they become haz

ardous.

7. A planned program wherein the highway design and construc

tion features increase the crash protection and survivability of acci

dents. It includes such features as yield or break away principles on

structures, obstacle-free roadsides, impact yielding barriers, and prop

erly designed guard rails and bridge railings.

8. A planned program of providing highway features that facili

tate post-crash emergency and other measures that will increase the

chances of full recovery by injured persons. Included are signs direct

ing motorists to hospitals, and training of maintenance personnel for

summoning aid to offer protection to motorists at the site.

Identification and Surveillance of Accident Locations

This standard is an extension of the “spot improvement” program

conducted by the Bureau of Public Roads and the state highway de

partments. In addition to the adoption of a program for correcting

high accident locations, it requires the provision for a system of road

numbers or mile post designations. Further, this standard calls for the

designation of an inter-agency team of engineers, enforcement person

nel and other specialists to maintain continued surveillance of roads

and streets for detection and correction of serious accident producing

conditions.

Traffic Control Devices

The purpose of this standard is to assure the full and proper appli

cation of modern traffic engineering practice and uniform standards

for traffic control devices in reducing the likelihood and severity of

traffic accidents. It provides for the following features:

1. An up-to-date detailed inventory of traffic control devices.

2. A planned program to update all traffic control devices to uni

formity.

3. All new traffic control devices must meet minimum standards.

4. A maintenance program for all traffic control devices.

5. A planned program for the establishment of maximum speed

limits and speed zones based on engineering and traffic investi

gations.

These three standards are examples of the approach we are taking

to assist states with their safety programs. In conclusion, here is the

basic approach taken in respect to the total national problem of street

and highway accidents.

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BASIC APPROACH TO ACCID ENT PROBLEM S

Dr. William Haddon, Jr., is Administrator of the National High

way Safety Agency, under which we function, and the National Traffic

Safety Agency, which concerns itself with vehicle standards. Dr. Had

don has frequently stressed the need for a simple and logical approach

to the accident problem by concerning ourselves with everything that

contributes to them.

Pre-crash Phase

Basically, we must provide for activities that address themselves to

three phases: (1) pre-crash (2) crash (3) post-crash. In the pre-crash

phase we are concerned with such factors as road-free obstacles, prop

er highway maintenance, uniform traffic control devices, and driver edu

cation, to name but a few.

Crash Phase

In the second, or crash phase, are such factors as energy-absorbing

material such as proper crash design of roadsides, with barriers, guard

rails, bridge railings designed to reduce the severity of injury to occu

pants of vehicles. Included in the crash phase is the design of vehicles

and the requirement that safety helmets be worn by motorcyclists.

Post-Crash Phase

In the third, or post-crash phase, is the problem of responding

quickly to persons involved in serious accidents. The transportation of

the injured, proper medical attention, as well as the removal of debris

to restore traffic safety and efficiency are matters that must be given

more attention.

CONCLUSION

Evaluate activities in relation to each of these three phases of high

way safety, and work systematically to minimize the end results of

death and injury. This is the process by which much of our planning

will be applied or the programs of the new National Highway Safety

Agency.

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ADDENDUM

STANDARDS FOR STATE HIG HW A Y

SAFETY PROGRAMS ARE ANNOUNCED*

[SUMMARY]

The Department of Commerced National Highway Safety Agency

today announced an initial set of draft standards for State and local

communities’ highway safety programs.

The draft standards were submitted for comment and suggestions to

representatives of the Governors of the 50 States who were meeting in

Washington at the invitation of the safety Agency to discuss imple

mentation of the Highway Safety Act of 1966.

Under Secretary of Commerce for Transportation Lowell K. Brid-

well told the State officials that the standards “are designed to help

you and your local communities develop your own highway safety pro

grams with the Federal Government providing financial aid, coordina

tion and leadership in the overall effort.”

Mr. Bridwell said the States were being asked to study the draft

standards and return their comments and suggestions to the National

Highway Safety Agency as soon as possible.

“This is another important part of President Johnson’s comprehen

sive traffic safety program which saw the first set of safety perform

ance standards for motor vehicles established last month,” Mr. Brid

well said. “The same sense of urgency attaches to this phase of the

effort,” he added, “because the toll of death and injury on our highways

continues to rise each day.”

Mr. Bridwell said the Bureau of Public Roads has increased its

emphasis on a spot improvement program to reduce high accident

locations. It recently has established more exact methods for identify

ing and correcting these high accident sites.

“It is also imperative,” Mr. Bridwell added, “that we establish the

State standards as soon as possible for the guidance of State officials

and legislators who will have the responsibility of implementing the

State programs.”

The National Highway Safety Act provides for 50-50 matching

funds for the States and local communities to expand and improve

their highway safety programs. It requires that at least 40 percent of

such funds go to local communities, and it poses the threat of the loss

of 10 percent of Federal-aid highway construction funds for those

States which fail to comply.

* United States Department of Commerce, Office of the Secretary, Wash

ington, D.C., February 16, 1967.

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Dr. William Haddon, Jr., Administrator of the new National High

way Safety Agency, said “the State programs must be in full operation

by December 31, 1968, but it is extremely desirable that the States pro

ceed immediately to develop their programs for implementation as

quickly as possible.”

Dr. Haddon said the issuance of State standards will be a continuing

process as the national drive to reduce death and injury on the high

ways develops. He noted that many of the standards require the kind

of data keeping which will aid the Agency in its search for the causes

of accidents and injuries and the means of preventing them.

“This will also help us in the future,” he said, “to direct the greatest

attention to those programs with the greatest payoff in terms of lives

saved and injuries reduced or avoided.” He said officials of the safety

Agency will meet Tuesday, February 21, with representatives of major

national highway safety organizations to seek their review and com

ment on this first set of State standards.

The draft standards unveiled today cover periodic motor vehicle

inspections; driver licensing, including reexamination of eyesight; driv

er education programs; licensing of driver schools; protective gear for

motorcyclists; uniform traffic control; emergency medical care; and

maintenance of complete and usable records relating to drivers, ve

hicles and accidents.

They also call for the State Health Departments to take the leader

ship in the problem of emergency medical care of persons injured in

traffic accidents. Establishment of a statewide emergency medical care

program also is required.

The standards also provide programs for correcting high accident

locations and call for examinations for alcohol content of persons

killed in traffic mishaps. Under the alcohol standard, the operator of

a motor vehicle would automatically give his implied consent to tests

for alcohol or face revocation of his license.

A summary of the draft standards follows:

DRIVER LICENSING —Each State must have a driver license

program covering minimum age limits, physical and eyesight examina

tions, knowledge of traffic laws, ability to comprehend traffic signs, and

ability to operate the kind of vehicle for which licensed. Periodic re

examination at least once every four years, with authority to reexam

ine more frequently than that for those under 25 years of age or over

65.

M O T O R VEHICLE REG ISTRA TIO N—Requires a central

registration system to provide means of identifying the owner, type,

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weight, size and carrying capacity of every vehicle licensed to operate in

a State; also that this information be made available for traffic safety

studies, research, enforcement, and other technical uses.

IN V ESTIG ATION AND SURVEILLANCE OF AC CIDENT

LOCATIONS—Each Sate, in cooperation with county and other local

governments, must have a program for identifying and improving high

accident locations and maintaining surveillance of locales with high

accident rates.

TRAFFIC RECORDS—Requires a central system, compatible

with local systems, to include all traffic data for the entire State. The

system shall be capable of providing summaries, tabulations, and

special analyses and shall include driver, vehicle, accident, and road rec

ords so designed that it is possible to relate all relevant records.

TR A FFIC COURTS—Requires that Traffic Court records and re

ports be forwarded to State highway safety records systems, and that

persons charged with exceptionally hazardous traffic violations must

appear in court. Suggests uniform accounting system for traffic fines

and uniform court procedures for traffic cases.

PERIOD IC M O TO R VEHICLE INSPEC TIO N—Requires in

spection at least annually of every motor vehicle, motorcycle, trailer, and

semi-trailer (except mobile homes) registered in the State. All vehicles

must be inspected prior to registration for the first time in the State.

Vehicles involved in fatal crashes also must be inspected before returning

to use. Inspection also required whenever title is transferred.

M OTORCYCLE SAFETY—Operators must be licensed in ac

cordance with standards set for driver licensing and cycles must be in

cluded in the periodic inspection program for motor vehicles. Operators

must wear protective headgear. Required safety equipment must be on

the vehicle before registration.

ALCOHO L IN RELATION TO HIGHW AY SAFETY —

States shall make it unlawful to drive when person’s blood alcohol con

centration equals or exceeds one-tenth of one precent; must require that

any person driving on public highways gives his implied consent to sub

mitting to chemical test for alcohol content in his blood, and refusal to

submit to such test will result in revocation of driver’s license. Calls for

program for checking alcohol blood content of motorists and adult

pedestrians who are killed in traffic accidents.

CODES AND LAWS—Each State shall develop and implement a

program to achieve uniformity of traffic codes and laws throughout

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the State, including Rules of the Road for all public streets and high

ways. Such Rules of the Road must be consistent with those of other

States.

TRAFFIC C ON TRO L DEVICES—Concerns State implementa

tion of control device improvements that will bring about national uni

formity. Includes signs, signals, markings, and a variety of electronic

controls that convey regulatory or convenience information to motorists.

EM ERGENCY M EDICAL SERVICES—Calls for State Health

Departments to employ full-time person to work on emergency care of

accident victims. Also requires setting up of statewide emergency med

ical services program.

HIGH W AY DESIGN, CON STRUCTIO N, AND M A IN TE

NANCE—Requires that existing street and highways be maintained in

a condition that promotes safety. Requires that modernization of existing

roads and new highways as well meet approved safety standards.

Precautions must be taken to protect passing motorists as well as high

way workers from accident involvement at highway construction sites.

DRIVER ED UCA TIO N—Requires comprehensive driver training

programs, meeting standards set by the State, be made available to

all high school students. Requires training and certification of school

instructors, regulation of other driver training schools, and the li

censing and certification of their instructors. Calls for research, de

velopment, and procurement of practice driving facilities such as

simulators and other tools for both school and adult training programs.