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Alabama Motorcycle Safety Certified Public Manager ® (CPM) Program 2014 CPM Solutions Alabama August 2014
Alabama Motorcycle Safety
Certified Public Manager® (CPM) Program
2014 CPM Solutions Alabama
August 2014
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Team Members
Alabama Department of Economic and Community Affairs
Aisha Hassan - [email protected]
Bill Whatley - [email protected]
Alabama Department of Human Resources
Brian Kolander - [email protected]
Lillie Tryon - [email protected]
Alabama Department of Labor
John Demas - [email protected]
Tina Geckles - [email protected]
Celena Perine - [email protected]
Kellie Pike - [email protected]
Alabama Department of Mental Health
Betty Hurd - [email protected]
Alabama Department of Revenue
Brandy Offord - [email protected]
Alabama Medicaid Agency
Stephanie Lindsay - [email protected]
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Table of Contents
Acknowledgements……………………………………………………………….…4
Introduction…………………………………………………………………………..6
The Problem…………………………………………………………………………7
Statistical Analysis Identifying the Problem.……………………………………..7
The Solution...………………………………….…………………………………...9
Recommendations………………………………………………………………....11
Conclusion.………………………………………………………………………....11
References………………………………………………………………………….13
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Acknowledgements
Bill Babington - Alabama Department of Economic and Community Affairs
Dr. David Brown - University of Alabama / Center for Advanced Public Safety
Rick Randolph - Alabama Traffic Safety Center
Tony Harris - Alabama Department of Transportation
Edith Peters - Florida Department of Transportation
Harris Blackwood - Georgia Governor’s Office of Highway Safety
Jessie Seagroves - Tennessee Governor’s Office of Highway Safety
Phil Riley - South Carolina Office of Highway Safety and Justice Programs
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Lt. Chris Brown - Alabama Department of Public Safety
Capt. Guy Rush - Alabama Department of Public Safety
Jay Starling - Alabama Department of Revenue
Andrew Stancell - National Highway Traffic Safety Administration
Dennis Blair - Alabama Department of Public Health
Sgt. Steven Jarrett - Alabama Department of Public Safety
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Introduction
Our project concerns Motorcycle Safety in Alabama; specifically our team – the Motorcycle Safety Task Force (Task Force) – was asked to evaluate the benefits of Mandatory Skills Testing for Motorcycle Riders in Alabama. It had been noted that the motorcyclist fatality rates in Alabama have not changed significantly over the past few years. The State of Alabama recently received a letter from the National Highway Traffic Safety Administration (NHTSA) recommending that countermeasures be put in place to reduce the number of motorcyclist fatalities in our State. Our Task Force adopted a detailed approach to review this issue which included problem identification, statistical analysis of the problem, researching solutions and the recommendation of a solution based on statistical data.
The Task Force was given the task of reviewing the State of Alabama’s motorcycle licensing laws. Specifically, the Task Force was asked to evaluate the benefits of mandatory skills testing for motorcycle riders in our state. Alabama has a problem regarding stagnating motorcyclist fatality rates. The Task Force studied statistical information, consulted with Subject Matter Experts (SME’s) and researched solutions implemented by other states to establish an accurate problem identification plan to assist in formulating a data based solution. Many stakeholders contributed to the formulation of this project. The goal of Task Force was to determine what was causing motorcyclist fatalities in Alabama, how to best address this issue and to recommend a solution that could be empirically tested and validated.
Motorcycle riders can be seen travelling on Alabama’s roads and highways year round. (The word rider refers to the motorcycle operator throughout this document.) Unfortunately, many riders are killed or seriously injured each year in Alabama because they lack the skills necessary to safely operate their motorcycles. Riders range in age from 14 years to those in their 70’s, representing virtually every demographic and socio-economic group imaginable. There are almost as many different motorcycle vehicle size and type options to choose from as there are riders. Unfortunately, the skill levels of these riders are also quite variable. Motorcycling is much more than a form of transportation for many people. For many it is a form of recreation and relaxation. Some people even claim that riding their motorcycles reflects who they are as individuals and is an expression of their identity. Regardless of how avid riders view their hobby or lifestyle, one thing is certain - unskilled riders can pose a hazard to themselves and to the people with whom they share the road. Most states have some form of motorcycle license criteria established to ensure that riders enjoy a safe riding experience. States that require riders to meet minimum standards better equip their riders to respond to the unique handling maneuverability and instability inherent with these vehicles. Proper training gives the rider the best chance of avoiding a crash which could cause serious injury or death.
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The Problem
Existing Alabama law does not require riders to have a motorcycle license or “M class” license to ride a motorcycle in Alabama. A standard driver’s license issued at age 16 is all that is needed to be a legally licensed motorcycle rider in Alabama. This means that at any given time, there are many unqualified, unskilled, and potentially dangerous riders who put themselves and others at an elevated degree of risk because, without training and experience, they simply are not trained to safely operate a motorcycle and navigate the risks that are synonymous with motorcycle riding. It is believed by traffic safety experts that the number of motorcyclist fatalities and serious injuries that occur in Alabama would be much lower if there were a mandatory skills test requirement in place. Riding a motorcycle requires more than being able to use one’s hands and feet. “Traffic Safety experts have long known that motorcycling is a complex psychomotor task that includes mental, physical and social competencies and abilities” (Motorcycle Safety Foundation (MSF) Search, Evaluate, Execute). Like any skill, safe motorcycle riding requires the application of appropriate knowledge, proficiencies and abilities. Many of these elements are not intuitive to most people, and they are best acquired when taught by a qualified instructor. The State of Alabama has in place a “motor driven cycle” law that enables 14 and 15 year olds to legally operate a 150cc or lower “motor driven cycle” on the State’s roads and Highways if they pass the State’s written test. However, anyone older than 15 years old, with a valid Alabama driver’s license, can operate any road-legal motorcycle. There is evidence suggesting that both of these practices create hazards with potentially serious consequences.
Statistical Analysis Identifying the Problem
According to Bill Babington, Division Chief of the Law Enforcement and Traffic Safety Division of the Alabama Department of Economic and Community Affairs (ADECA), substantial evidence has been presented to demonstrate that motorcycle fatalities are a significant problem in the State of Alabama. Babington stated that there were 97 motorcyclist fatalities in 2012, which is much higher than the expected number for a state with the population and demographics of Alabama. As a result of these observations, the NHTSA instructed the Alabama Highway Traffic Program staff that “Motorcyclist fatalities should be monitored closely and countermeasures should be developed that will cause a reduction in the number of motorcyclist fatalities.”
Alabama has averaged 91 motorcycle fatalities over the past five years. There was a significant improvement between 2008 (100 fatalities) to 2009 (76 fatalities); but this was followed by a regression to the mean in subsequent years to the point that Alabama was not significantly different from its 2008 number in 2011 or 2012. The Task Force consulted with Dr. David Brown of the Center for Advanced Public Safety (CAPS) located at the University of Alabama. Dr. Brown and his team are responsible for capturing, evaluating and interpreting the majority of the crash data that are utilized by
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different agencies in the State of Alabama. Dr. Brown shared some very useful information with the Task Force. His study of motorcycle crash data shed new light on the subject for many members of the Task Force. His study detailed the majority of motorcycle crashes are single rider crashes and 69% of these crashes were recorded as being at the fault of the rider. He also said the demographic group that is most overrepresented in these crashes is riders 46 to 55 years of age. While the number of riders in this group would have the largest influence on how often they are involved in crashes, this elevation warrants additional research into the skill level of riders in this group.
Chart 1
Another interesting fact that Dr. Brown’s research revealed was that riders in rural areas are most likely to be at-fault for crashes and riders in urban areas are more likely to be the victims of crashes. This might be explained by the closer interaction of motorcycles with other vehicles in the urban areas, and the increased speed that tends to occur in rural areas, which could lead to the rider causing the crash.
Chart 2
46-55
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The statistical information also shows that the majority of the motorcycle crashes occur in urban areas. Chart 2 represents crashes that were motorcycle caused, while Chart 3 represents crashes that were caused by other vehicles in the crash.
Chart 3
Dr. Brown shared this observation with the Task Force: “The main thing that reached out and grabbed me is the tremendous difference between motorcycle-causal and motorcycle-victim crashes - almost every variable was different. For example, causals are heavily rural while victims are largely urban. There must be two prongs to the training-risk avoidance and defensive riding – one to counter motorcycle rider errors and the other as a type of defensive riding against errors made by other vehicles.”
The statistics make clear that we have a problem in Alabama regarding the preparedness and skill levels of our motorcycle riding population. Dr. Brown’s research has not only exposed the problem but identified it and narrowed it down to specific skill sets that need to be developed.
The Solution
Once it was clearly demonstrated that a problem exists, the Task Force consulted with Rick Randolph, Alabama Motorcycle Safety Program Manager with the Alabama Traffic Safety Center at the University of Montevallo. He stated the MSF curriculum addresses the concerns listed by Dr. Brown. He also stated the MSF programs are currently being used by the majority of the states in the United States.
With the exception of Alabama, all other states in the NHTSA Region 4 area are among those that mandate motorcycle training as part of their motorcycle licensing requirement. To further research licensing standards, our team focused on what Florida is doing since they have the largest motorcycle rider population in the southeast United States. Florida State Statute 322.03 (4) states, “A person may not operate a motorcycle unless he or she holds a driver’s license that authorizes such operation, subject to the appropriate restrictions and endorsements.” This law requires the applicant to complete
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a motorcycle safety course, MSF Basic Rider Course or provide an out-of-state license for any state EXCEPT ALABAMA.
The Basic Rider Course offers the best solution for the State of Alabama to address its motorcycle training needs. The Basic Rider Course is primarily for those who have limited or no riding experience, and includes classroom instruction and riding skills exercises. This fits the guidelines set by NHTSA in their Motorcycle Safety brochure that reads “A motorcyclist should attend a motorcycle rider-training course to learn how to safely and skillfully operate a motorcycle.” This training is further recommended in the United States Department of Transportation, Moving Ahead for Progress in the 21st Century, Highway Safety Legislation that says, “Additionally, because State motorcycle rider training courses typically include both in-class and on-the-motorcycle rider training and both are critical to the effectiveness of a motorcycle rider training course, the Interim Final Rule requires that the curriculum include both types of training” (23 CFR 1200.25 (e)(1)(i)). If this law were enacted in Alabama, riders who successfully complete the Basic Rider Course would receive a certificate which could then be taken to the Alabama Department of Public Safety (DPS) licensing office where the rider would be issued a motorcycle license or an “M Class” license. Unlike a riders’ current Alabama driver’s license, this license would be recognized and honored as meeting national standards across the United States.
A few of our Task Force members took MSF’s Basic Rider Course. They were surprised how tough and comprehensive the course was. Some had never touched a motorcycle before and some had been riding for over 40 years. In the classroom, riders are taught to develop a strategy to handle dangerous situations. They are taught the S.E.E. method which means Search, Evaluate and Execute. During the rider portion, riders are taught skills such as how to swerve, properly handle curves and proper braking technique. They said that they each learned something new during the course.
Our Task Force proposes that the funding for the implementation of this program will come from fees collected from those taking the tests and from fees collected from motorcycle registrations. The proposed legislation will call for those taking the Basic Rider Course to be charged $200 to take a two-day Basic Rider Course. For those who currently have an “M Class” license, they will be required to take the course also, but will be charged $85 in order to cover the cost of the skills test alone. A fee of $2.50 will be assessed from each motorcycle registration to provide a steady stream of funding in order for the program to function at a basic level. This fee will be used to cover the cost of monitoring the program, including oversight from DPS.
The Task Force recommends third party vendors conduct the course and testing of applicants given that DPS does not have the existing resources to carry out the additional duties. Captain Guy Rush with the Driver License Division of DPS was consulted and he agreed that third party vendors should conduct the course and testing of applicants. Capt. Rush stated that, “DPS does not currently have the staff to conduct this type of examination and would support outside vendors carrying out these duties.” Capt. Rush also said that the fees collected would make funds available to DPS so that examiners could monitor the third party testing sites to ensure program integrity.
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The Task Force reviewed information from the State of Florida regarding their motorcyclist fatality statistics to compare these numbers before and after the mandatory training law was put into place. Prior to the mandatory training law, Florida motorcycle fatalities rose from 252 fatalities in 2001 to 521 in 2006. Once the mandatory training law was enacted, Florida motorcycle fatalities decreased to 350 in 2010. The statistics show a significant reduction in motorcyclist fatalities after the law was enacted.
Recommendations
The Task Force recommends the State of Alabama require a motorcycle training course for those desiring to have a motorcycle license or “M Class” license. The statistical information clearly indicates that proper skills training coupled with a comprehensive classroom curriculum helps reduce deaths and serious injuries in both causal and victim crashes.
This training must be accompanied by the enforcement of motorcycle licensing laws and the proper use of United States Department of Transportation approved helmets. Rider visibility, through the use of brightly colored motorcycles and fluorescent vests and the utilization of proper rider clothing, such as riding jackets, pants and boots, are necessary to not only improve the visibility of the motorcyclists to other vehicles, drivers and riders, but to improve the safety of the motorcyclists. In addition, the general public must be educated and informed regarding motorcycle ridership on the state’s roads and highways through public service announcements and awareness campaigns.
It is imperative that all of these elements be incorporated to ensure maximum rider safety. Saving lives and preventing serious injuries that result from motorcycle crashes on Alabama’s roads and highways must be a priority. These are simple steps that should be taken to reduce loss of life or serious injuries that result from motorcycle crashes.
It is important to recognize that motorcyclist behavior affects more than just the motorcyclist. Unskilled riding practices can cause crashes that can result in injuries and deaths to those in other vehicle types and to pedestrians. Mandating skills training not only benefits the motorcycle population, but it is intended to have an overall positive effect on traffic safety throughout the state.
Conclusion
The template for effective motorcycle training is already in place in each of the other 49 states. Proper utilization of rider skills testing in the State of Alabama will greatly increase the safety of the motorcycle riders in our state. The loss of life, number of serious injuries and economic costs of these crashes can be greatly mitigated by the implementation of our recommendations.
Lt. Chris Brown with DPS was asked about the training of the State Trooper motorcycle unit. He indicated State Troopers must attend and successfully complete a mandatory 80 hour training course to be able to ride with their “Flying Wheel” unit. This course is taught by Alabama State Troopers who go to Florida to attend special training to be qualified to teach this class.
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Professional riders see the benefit and safety enhancements of motorcycle training that includes both classroom and rider skill testing. We want no less for every citizen of our state.
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References
Safe Home Alabama Website
2011 Alabama Traffic Crash Facts: http://www.safehomealabama.gov/Portals/0/Downloads/2011%20Crash%20Facts%20Book-Final%20to%20ALDOT.pdf
State of Alabama: Strategic Highway Safety Plan Second Edition: http://www.safehomealabama.gov/Portals/0/PDF/11-SAS-009.FullVersionFINALLowRes.pdf
Center for Advanced Public Safety: Motorcycle Impact Analysis: A Comparative Study of Motorcycle Crash Records: http://www.safehomealabama.gov/Portals/0/PDF/Motorcycles/Motorcycle%20Crash%20Analysis%20Presentation%20for%20Legislative%20Team.pdf
Center for Advanced Public Safety: Motorcycle Impact Analysis: A Comparative Study of Motorcycle Crash Records: Complete Set of PPT Slides: http://www.safehomealabama.gov/Portals/0/PDF/Motorcycles/Motorcycle%20Motorcycle%20Crash%20Analysis%20Backup%20Information.pdf
National Highway Traffic Safety Administration Website
GIS Fatal Traffic Crash Maps: http://www-nrd.nhtsa.dot.gov/departments/nrd-30/ncsa/STSI/1_AL/2012/1_AL_2012.htm
Driving Safety: Motorcycles: http://www.nhtsa.gov/Safety/Motorcycles
(Include Prioritized Recommendations AND National Model Standards
Alabama Motorcyclist Fatalities by Helmet Use and Lives Saved Estimates: http://www-nrd.nhtsa.dot.gov/departments/nrd-30/ncsa/STSI/1_AL/2012/1_AL_2012.htm#TAB5C
US Department of Transportation: National Highway Traffic Safety Administration: Traffic Safety Facts 2011 Data: http://www-nrd.nhtsa.dot.gov/Pubs/811765.pdf
State of Alabama Highway Safety Plan
Motorcycle Safety Foundation Website
MSF RiderCourse Interactive Tour: http://msf-usa.org/index_new.cfm?pagename=RiderCourse Interactive Tour&content=31DD1BE2-A0CC-53D5-6435C5B0804E97B8&referer=What%20You%27ll%20Learn
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Giving Motorcyclists the Best in Training: Designing Principle-Based, Safety-Oriented Education and Training Programs: http://online2.msf-usa.org/msf/pdfs/ifz_msf_giving_motorcyclists_the_best.pdf
Preparing Riders to S.E.E. Better: MSF Tools for Improving Hazard Perception: http://msf-usa.org/vru/MSF_Tools_for_Improving_Hazard_Perception.pdf
An MSF Manual: Motorcycle Operator Manual: http://www.msf-usa.org/downloads/library_motorcycle_operator_manual.pdf
Ride Smart Florida Website
Ride Smart Florida/Safety Professionals/Educator Resources: http://www.ridesmartflorida.com/educatorresources.shtm
Ride Smart Florida/Safety Professionals/Motorcycle Strategic Safety Plan: http://www.ridesmartflorida.com/motorcyclestratplan.shtm
Governors Highway Safety Association Website
Motorcycle Operator Training: http://www.ghsa.org/html/issues/motorcyclesafety.html
