Post on 03-Feb-2022
transcript
Integrating Safety into Tribal Transportation Planning
presented to16th Annual Tribal Transportation SymposiumTransportation Planning TrackSponsored by the Affiliated Tribes of Northwest Indians &The Northwest Tribal Technical Assistance Program
presented byCraig Genzlinger, Tribal CoordinatorFHWA-MTforColleen Jollie, MPAWHPacific, Inc.360-918-5337
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Presentation Credits
Developed for the interagency Transportation Safety Planning Working Group
Developed by Cambridge Systematics Inc.• Contacts
− Susan Herbel (sherbel@camsys.com)− Audrey Wennink (awennink@camsys.com)− Sam Lawton (slawton@camsys.com)
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Overview
Why is Tribal Transportation Safety Planning necessary?
What is Transportation Safety Planning?
What role does data play in Transportation Safety Planning?
What are the products resulting from Transportation Safety Planning?
How can we fund the Transportation Safety Planning process and projects?
Summary – What have we learned?
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Transportation Planning
Promoting transportation safetyis a fundamental purpose of
transportation planning
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Issues Unique to Tribes
Tribal sovereignty
Jurisdiction in Tribal and non-Tribal lands
Confidentiality of data
Cultural identity
Tribal courts
State versus Tribal relationship
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Need for Tribal Transportation Safety Planning
Native Americans • Highest risk of motor-vehicle related death of all
ethnic groups• For ages 4 to 44, motor-vehicle related injuries
are the leading cause of death
From 1975 to 2002 fatal crashes on Indian Reservations increased 52 percent
78 percent of Native Americans fatally injured were not using safety belts (1999-2004, FARS)
57 percent of fatally injured Native American drivers were drinking (1999-2004, FARS)
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Fatally Injured Drivers by Race/Ethnicity and Blood Alcohol Concentration
Source: NHTSA, Race and Ethnicity in Fatal Motor Vehicle Crashes, 1999-2004.
100%
80%
60%
40%
20%
0%
Percent
White Black Native American Asian/PI Hispanic
No Alcohol <.08 BAC >.08 BAC
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Percentages of Drivers Killed with Alcohol by Sex and Race/Ethnicity
100%
80%
60%
40%
20%
0%
Percent
White Black Native American Asian/PI Hispanic
Male Female
Source: NHTSA, Race and Ethnicity in Fatal Motor Vehicle Crashes, 1999-2004.
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Fatalities (Age 5 and Older) in Passenger Vehicles by Restraint Use and Race/Ethnicity
Source: NHTSA, Race and Ethnicity in Fatal Motor Vehicle Crashes, 1999-2004.
100%
80%
60%
40%
20%
0%
Percent
White Black Native American Asian/PI Hispanic
Safety Belts No Restraints
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Safety Challenges for Tribal Communities
Road characteristics and maintenance
Data management
Occupant restraint
Alcohol
Law enforcement
Pedestrian crashes
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Road Characteristics and Maintenance
Most Tribal lands are in rural, isolated locations
Road maintenance on reservations is generally lacking due to under-funding
Rural reservation road data is often limited or outdated
Reservation roads often lag behind other road systems in design and safety standards
Traffic markings and signs are limited
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Data Management
BIA and Tribal police departments often do not have standardized system for collecting and storing crash data
Tribal traffic records are likely to be stored in multiple departments
Addressed in Data Module in detail
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Occupant Restraint
Low safety belt use rates• Overall, Native American safety belt use on reservations is 62
percent (2006) compared to a national average of 82 percent (2007)
• Child safety seat use is low – 27 percent (1999-2004, FARS)
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Alcohol Impacts & Pedestrian Fatalities
From 1982 to 2002, 65 percent of Native American fatal crashes involved alcohol, compared to the national average of approximately 47 percent
More than 50 percent of Native American drivers in fatal crashes were over the legal limit (>=.08 BAC) (1999–2004, FARS)
Pedestrian death rates are five to seven times the national average
Almost 70 percent of fatally-injured Native American pedestrians had been drinking at the time of the crash
There is a high incident rate of train – pedestrian fatalities, often resulting from alcohol usage
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Law Enforcement
Police resources are very limited• 2,380 BIA and tribal officers police 1.4 million Native
Americans on 56 million acres of land• About half of the number of officers per capita in other
American communities• Most reservations are rural and tribal members are located in
small isolated communities remote from the tribal headquarters
• Tribal/BIA police spend most of their time on law enforcement activities other than traffic enforcement
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Crashes Aren’t Accidents
Integrating Safety and Transportation Planning
Many crashes are preventable
Injury prevention is a public health issue
Transportation Safety Planning is critical to improving the safety and quality of life,
or even life itself,
for Native Americans
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SAFE-TEA-LU
SAFETEA-LU is the Safe, Accountable, Flexible, Efficient Transportation Equity Act – A Legacy for Users• Federal Transportation Reauthorization Passed in 2005
guiding transportation planning for 2005-2009• We are at the END of SAFETEA-LU
Increased emphasis on transportation safety planning
Section 148 of SAFETEA-LU mandates the development of a Strategic Highway Safety Plan (SHSP)
What about the NEXT-TEA?
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HSIP and HSP
Highway Safety Improvement Program (HSIP)• State plan for safety infrastructure improvements• Federally funded
State Governor’s Office of Highway Safety develops Highway Safety Plan (HSP)• Focus largely on behavioral issues, e.g., safety belt use and
impaired driving• Federal and state funding• In Washington State this is Target Zero.
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SHSP
State Strategic Highway Safety Plan (SHSP)• Addresses 4E’s: Engineering, Education, Enforcement and
Emergency response• Evidence based using at least traffic crash data• Focus on “emphasis areas” and strategies with greatest
potential payoff• Involves a wide range of stakeholders in the process
including Tribal Governments• Includes methods to measure performance
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Relationship Between SHSP Transportation and Existing Planning and Programming Processes
TIP(Metropolitan)
Statewide Transportation Plan (Long Range Plan)
Metropolitan Transportation Plans
State Strategic Highway
Safety Plan (SHSP)
HSIP(23 U.S.C.
§ 148)
CVSP*(49 U.S.C. § 31102)
HSP(23 U.S.C.
§ 402)
Statewide Transportation Improvement Program
(STIP)
Other State Plans
(e.g., Freight Plan, Ped/Bike Plan)
*CVSP -Commercial Vehicle Safety Program
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Best Practices
Identify safety as a major goal of the planning agency
Develop a multi-disciplinary safety management process, with an emphasis on roadway safety
Emphasize safety on all projects
Designate a safety champion/coordinator
Use current technologies (i.e., GIS and Internet)
Develop community-based traffic safety programs
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Best Practices (continued)
Comprehensive, e.g., the “4 E’s” of safety (Engineering, Enforcement, Education, and Emergency response)
Develop systematic and well-documented processes that can be sustained
Create a traffic records coordinating committee
Collect and use timely and accurate crash data
Select hazardous locations for corrective action
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Current Tribal Safety Planning Practices
Existing Tribal transportation safety plans and programs have been developed in partnership with agencies/programs including
• Federal Highway Administration (FHWA)
• Indian Highway Safety Program (BIA)
• Indian Health Service (IHS) Injury Prevention Program
• Tribal Safe Community Program (NHTSA)
• State DOTs and local governments
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Current Tribal Planning Practices
Examples of Tribal transportation safety projects• Public service campaigns and active enforcement of safety
belt laws and drunk driving• High school education programs on safety belt use and
bicycle safety• New legislation and enforcement of child safety seat use• Tribal funded and operated safety programs and campaigns
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Good Data is Fundamental
Basis for all plan development
Justification for funding
Benchmark changes
Develop priorities
Evaluate the outcomes
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Types of Data
Traffic and roadway data• Often available through county, state, and BIA files• Can be collected through field inspections (Road
Safety Audits) • Traffic counts can be found in the IRR inventory• Bridge inventories• Traffic sign inventories• Pavement condition inventories
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Types of Data (continued)
Motor vehicle crash data• Provides detail on each crash and individuals involved• Insurance Companies• Emergency Medical Services (EMS)• Medical Facilities• Helps identify contributing factors
− Safety belt use− Blood alcohol level− Roadway condition− Other contributing factors
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Types of Data (continued)
Geographic Indicators• Boundaries• Zip codes• Roadway logs• Milepost• Roadway Names/Intersection• GPS coordinates
Demographic indicators• Age• Gender• Tribal membership
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Basic Data Needs
Data recorded soon after crashes in a consistent format (preferably at the crash site) on approved crash reporting forms
Crash records defined consistently with (NHTSA and MMUCC) standards to allow for comparative analysis
Thorough record of each crash
Sharing of crash data between agencies to the fullest extent possible
Citation data and court disposition records (statistical only)
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Data to Identify Location and Severity of Crashes Navajo Nation Intersection Crash Location Analysis (2001)
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Data to Identify Factors Contributing to Crashes Navajo Nation Contributing Factors Analysis (2001)
Acy CommunityRte
NumberNumber
Accidents Miles ADTAcct Rate Location BMP EMP
Percent Accidents by
Cause*
N32 Shiprock 64 166 1.0 6,520 23.2 NM64 btwn SW & NE Jct 22 23
N33 Tuba City 160 38 0.5 4,961 14.0 Fr AZ264 to Warrior Dr 321.9 322.4
N36 Window Rock 264 31 0.6 4,773 9.9
AZ264 fr N12 Jct to NM State
line 475.5 476.1
N36 Window Rock 264 65 1.9 4,287 7.3 AZ264 fr N112
Jct to N12 Jct 473.6 475.5 41.3% After Dark
N36 Window Rock 12 36 0.7 9,999 4.7
N12 fr AZ264 Jct to Shonto
Blvd23.5 24.2
N33 Tuba City 1011 16 0.8 4,034 4.5 Fr N1017 to Warrior Dr 0 0.8 37.5%
After Dark
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Data Considerations (continued)
Determine• Responsibilities for storage and maintenance• Standards for integrating data• Methodology for integrating data
Develop Tribal traffic records coordination committee
Establish Tribal policies on traffic records management• Internal data storage• Maintenance responsibilities
Consider NHTSA guidelines when developing a traffic records system
Improve communications between planners/engineers and law enforcement personnel on data needs
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Data Considerations
Data considerations/issues
• What data does the Tribe have?
• What data will be shared outside the Tribe?
• Who will have access to shared data?− Data in government databases is usually available to the public
• What are the purposes for using the data?
• How will the Tribe be involved in the process (i.e., oversight, reports, review?)
• What are the advantages or disadvantages to the Tribes in sharing data?
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Use of Data
Example –Menominee Reservation (WI) observational survey
of occupant restraint use
22 percent belt use
9 percent child safety seat use
Showed that transportation safety strategies should focus on occupant restraint
Colville Reservation: Changed , went from 36% Seat Belt use to 87% in one year.
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Roadway Safety Strategies
Fencing for roads with high rates of animal crashes
Street lights for roads with high crash rates after dark
Lighting and intersection design for intersections with high crash numbers
Access control for areas of development with high numbers of crashes
Sidewalks and pedestrian crossings for roads with high pedestrian crash rates
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Intersection Safety Strategies
Strategies to improve intersection safety• Better intersection design• Raised medians• Street lights in growth centers
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Products and Desired OutcomesTribal Plans and Programs
Tribes may develop their own Tribal plans including• Tribal Long-Range Transportation Plan (TLRTP)• Tribal Strategic Highway Safety Plan (TSHSP)• Tribal Highway Safety Improvement Program (THSIP)
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Products and Desired Outcomes
Tribal Safety Programs• Objectives
− Reduce the number of and severity of motor vehicle crashes− Decrease the potential for crashes
• Identify and address highway safety needs:− Unsafe highways− Impaired driving− Traffic records improvements− Child passenger safety education− NHTSA-sponsored Safety Assessments− Road safety audits
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Tribal Safety Programs (continued)
Tribal considerations• Utilize available Highway Safety Improvement
Program (HSIP) guidelines• Review and consider revising outdated Tribal
transportation and traffic codes in the THSIP plan• Develop THSIP plan in coordination with Tribal
transportation planning process• Coordinate with Safety Management System (SMS)
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Tribal Safety Programs (continued)
Tribal Transportation Safety Management System (SMS)• Federally mandated that BIA develop a SMS to address
safety on Tribal lands• Administered by BIA and FHWA with assistance from other
safety partners• Each Tribe is encouraged, but not required, to develop its
own SMS
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Tribal Safety Programs (continued)
HSIP is a state requirement• Requires a Strategic Highway Safety Plan (SHSP) be
developed• Annual report must be completed describing 5% of state’s
most severe safety locations• Annual reports required describing progress and
effectiveness of HSIP
Tribes are encouraged to develop their own HSIP in coordination with the state
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Highway Safety Improvement Program Eligible Projects
Intersection safety
Pavement and shoulder widening
Rumble strips
Skid resistant surface
Pedestrian, bicycle, disabled improvements
Railway-highway crossing safety improvements
Traffic calming
Safety conscious planning42
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HSIP Eligible Projects (continued)
Elimination of a roadside obstacle
Improvement in highway signage
Improvement in data collection and analysis
Work zone safety
Guardrails and barriers
Measures to reduce wildlife crashes
Signs at pedestrian-bicycle crossings and in school zones
Improvements on high-risk rural roads
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THSIP Development
Initiate development of THSIP
Determine whether a Tribe has a highway safety problem
Select funding sources
Plan for THSIP or safety project
Implement the THSIP based on this plan
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Model ProcessFlow of Activities
Task 1
Task 2
Task 3
Task 4
Tribal Council
Appoints THSIP Team
Preliminary Highway
Safety Assessment
Council Briefings on
Highway Safety
Programs
Council Decisions on Investigating
Highway Safety Programs
Process Ends or
Tribe Funds Own THSIP
Identify Potential
THSIP Benefits and
Costs for Tribe
Identify Tribal Actions
Necessary to Effectively
Compete for Funds
Identify Funding for Developing
THSIP or Safety
Project Plans
Preliminary Selection of
Funding Sources to
Pursue
Process Ends or
Tribe Funds Own THSIP
Prepare Scope of Work for Planning a THSIP
or Highway Safety Project Plan
Secure Funding for Development of
THSIP or Highway Safety Project
Develop Plan for THSIP or
Highway Safety Project
Establish THSIP/Safety Project Implementation Team
and Coordinator
Secure Funding and Technical Support for THSIP/Safety Project
Implementation
Implement THSIP/Safety Project per
Plan
Evaluate Safety
Project(s)
NO
YES
NO
YES
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HSIP Data Requirements
5% report of most dangerous locations• Methods should primarily be based on fatalities and
serious injuries
Determine if reporting will be problematic given existing capacity and data
Consider community concerns about potentially hazardous locations, even without crash history
Confer with the state DOT on hazardous roadway locations before project development (may preclude state questioning Tribal prioritization of hazardous locations)
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Products and Desired OutcomesTribal Long-Range Transportation Plan (TLRTP)
TLRTP development• Establish policy, goals, and objectives• Analyze transportation system conditions• Perform needs analysis• Set priorities• Establish funding plan• Develop the plan• Develop the program• Implement and monitor the plan
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FUN
DIN
G S
OU
RC
ES
Incorporating Safety into the Transportation Planning Process
LRTP
TTIP
IRR TIP
State TIP
Safety CommitteeInput
Tribal Council
Other Sources
Construct Project
Evaluate
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Transportation Safety Behavioral Approach
LRTP
TTIP
Safety CommitteeInput
Tribal Council
State Highway Safety Offices
Indian Highway Safety Program
State Department of Transportation
Other Sources
FUN
DIN
G S
OU
RC
ES
Implement Program
Evaluate
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IRR Transportation Planning Funds
“Up to 2 percent of funds made available for IRR each fiscal year shall be allocated to those Indian Tribal Governments applying for transportation planning pursuant to the provisions of the Indian Self-Determination and Education Assistance Act” (23 U.S.C. 204 (J))
In addition to the 2 percent set-aside, Transportation Planning is an eligible item that can be funded with a Tribe’s share of IRR funds
Some Tribes have fuel tax rebates that can be used for transportation planning.
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IRR Transportation Planning Funds (continued)
Administered by BIADOT and FHWA Federal Lands Highway Office
Available to Indian Tribal Governments for transportation planning on Indian lands
Tribes prioritize how IRR funds will be used at the tribal level
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IRR Transportation Planning Funds (continued)
Eligible activities include but are not limited to • Transportation planning• Tribal representation at transportation planning meetings• Preparation of application for funds from other sources• Planning related activities for other modes such as transit• Employment of a transportation planner• Research of right-of-way records for transportation planning
purposes• Other activities in a proposal that is mutually agreeable to the
Indian Tribal Government and the Secretary of the Interior
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IRR Program Funds
IRR Program Funding• IRR funds allocated to tribes from FHWA through the BIA are based
on a Tribal share formula determined from population and data in the IRR Inventory
• Priorities for construction and improvement of roads, bridges, and transit facilities leading to, and within, Indian reservations or other Indian lands are determined by the local Tribal government
• IRR funds may be used on any eligible transportation project or facility prioritized by the Tribal government consistent with Title 23
• IRR Program Funds may pay for the local match for many other fund categories
• A Tribe may use up to $35,000 or 5% of its IRR Program construction fund, whichever is greater, for transportation planning. However, BIA will subtract the exceeding amount from the Tribe’s CTC for the following year, if the Tribe exceeds this threshold
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NHTSA
National Highway Traffic Safety Administration (NHTSA) administered through the state Governor’s representative (safety only)• State and Community Highway Safety Grant• Intoxicated Driver Prevention Program• Alcohol-Impaired Driving Countermeasures Incentive Grants• Safety Incentive Grants for Safety Belt Use• Occupant Protection Incentive Grants• State Highway Safety Data Improvement Grants• Child Passenger Education Program• Research and Demonstration Grants• Training
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BIA Indian Highway Safety Program (IHSP)
Funded by NHTSA with BIA being considered as a state
Administered by BIA Office of Indian Highway Safety Program in Albuquerque• Programs include many of the same programs available to
states for Highway Safety• These highway safety funds are set aside in SAFETEA-LU for
Tribal governments the same as the highway safety funds are set aside to be allocated to states
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States
State funded and administered in some states • State Highway Funds • State Safety Funds• Transportation Loan Programs
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Other Organizations
Indian Health Services (IHS)• Injury prevention training • Motor vehicle crash reporting and analysis training• Fellowships for Epidemiology and Tribal Capacity
Other Federal departments such as Energy, Education, Housing and Urban Development, Agriculture, Justice, and Health and Human Services
Tribal funding• Tribal health programs• Fuel Tax Rebates
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Resources
www.fhwa.dot.gov/hep/tribaltrans/lrtpmod.htm
www.fhwa.dot.gov/hep/tribaltrans/saf_ack.htm
http://tsp.trb.org
http://www.fhwa.dot.gov/policy/ohpi/referral.cfm
http://www.planning.dot.gov/metro.asp
http://www.ltapt2.org/centers
http://tsp.trb.org/assets/Briefing%20Book%20hi-res.pdf
http://www.mmucc.us/