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VOLUME 21
NATIONAL
NCHRP REPORT 500
COOPERATIVE
HIGHWAY
RESEARCH
PROGRAM
Guidance for Implementation of the
AASHTO Strategic Highway Safety Plan
Volume 21: Safety Data and
Analysis in Developing
Emphasis Area Plans
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TRANSPORTATION RESEARCH BOARD 2008 EXECUTIVE COMMITTEE*
OFFICERS
CHAIR: Debra L. Miller, Secretary, Kansas DOT, Topeka
VICE CHAIR: Adib K. Kanafani, Cahill Professor of Civil Engineering, University of California, Berkeley
EXECUTIVE DIRECTOR: Robert E. Skinner, Jr., Transportation Research Board
MEMBERS
J. Barry Barker, Executive Director, Transit Authority of River City, Louisville, KY
Allen D. Biehler, Secretary, Pennsylvania DOT, Harrisburg
John D. Bowe, President, Americas Region, APL Limited, Oakland, CA
Larry L. Brown, Sr., Executive Director, Mississippi DOT, Jackson
Deborah H. Butler, Executive Vice President, Planning, and CIO, Norfolk Southern Corporation, Norfolk, VA
William A.V. Clark, Professor, Department of Geography, University of California, Los Angeles
David S. Ekern, Commissioner, Virginia DOT, Richmond
Nicholas J. Garber, Henry L. Kinnier Professor, Department of Civil Engineering, University of Virginia, Charlottesville
Jeffrey W. Hamiel, Executive Director, Metropolitan Airports Commission, Minneapolis, MN
Edward A. (Ned) Helme, President, Center for Clean Air Policy, Washington, DC
Will Kempton, Director, California DOT, Sacramento
Susan Martinovich, Director, Nevada DOT, Carson City
Michael D. Meyer, Professor, School of Civil and Environmental Engineering, Georgia Institute of Technology, Atlanta
Michael R. Morris, Director of Transportation, North Central Texas Council of Governments, Arlington
Neil J. Pedersen, Administrator, Maryland State Highway Administration, Baltimore
Pete K. Rahn, Director, Missouri DOT, Jefferson City
Sandra Rosenbloom, Professor of Planning, University of Arizona, Tucson
Tracy L. Rosser, Vice President, Corporate Traffic, Wal-Mart Stores, Inc., Bentonville, AR
Rosa Clausell Rountree, Executive Director, Georgia State Road and Tollway Authority, Atlanta
Henry G. (Gerry) Schwartz, Jr., Chairman (retired), Jacobs/Sverdrup Civil, Inc., St. Louis, MO
C. Michael Walton, Ernest H. Cockrell Centennial Chair in Engineering, University of Texas, Austin
Linda S. Watson, CEO, LYNXCentral Florida Regional Transportation Authority, Orlando
Steve Williams, Chairman and CEO, Maverick Transportation, Inc., Little Rock, AR
EX OFFICIO MEMBERS
Thad Allen (Adm., U.S. Coast Guard), Commandant, U.S. Coast Guard, Washington, DC
Joseph H. Boardman, Federal Railroad Administrator, U.S.DOT
Rebecca M. Brewster, President and COO, American Transportation Research Institute, Smyrna, GA
Paul R. Brubaker, Research and Innovative Technology Administrator, U.S.DOT
George Bugliarello, Chancellor, Polytechnic University of New York, Brooklyn, and Foreign Secretary, National Academy of Engineering,
Washington, DC
Sean T. Connaughton, Maritime Administrator, U.S.DOT
LeRoy Gishi, Chief, Division of Transportation, Bureau of Indian Affairs, U.S. Department of the Interior, Washington, DC
Edward R. Hamberger, President and CEO, Association of American Railroads, Washington, DC
John H. Hill, Federal Motor Carrier Safety Administrator, U.S.DOT
John C. Horsley, Executive Director, American Association of State Highway and Transportation Officials, Washington, DC
Carl T. Johnson, Pipeline and Hazardous Materials Safety Administrator, U.S.DOT
J. Edward Johnson, Director, Applied Science Directorate, National Aeronautics and Space Administration, John C. Stennis Space Center, MS
William W. Millar, President, American Public Transportation Association, Washington, DC
Nicole R. Nason, National Highway Traffic Safety Administrator, U.S.DOT
James Ray, Acting Administrator, Federal Highway Administration, U.S.DOT
James S. Simpson, Federal Transit Administrator, U.S.DOT
Robert A. Sturgell, Acting Administrator, Federal Aviation Administration, U.S.DOT
Robert L. Van Antwerp (Lt. Gen., U.S. Army), Chief of Engineers and Commanding General, U.S. Army Corps of Engineers, Washington, DC
*Membership as of May 2008.
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NATIONAL COOPERATIVE HIGHWAY RESEARCH PROGRAM
NCHRP REPORT 500
Guidance for Implementation of the
AASHTO Strategic Highway Safety Plan
Volume 21: Safety Data and
Analysis in Developing
Emphasis Area Plans
Forrest M. Council
VANASSE HANGEN BRUSTLIN, INC.
Raleigh, NC
Douglas W. Harwood
Ingrid B. Potts
Darren J. Torbic
Jerry L. Graham
Jessica M. Hutton
MIDWEST RESEARCH INSTITUTE
Kansas City, MO
Barbara Hilger Delucia
DATA NEXUS, INC.
College Station, TX
Raymond C. Peck
R.C. PECK AND ASSOCIATES
Oakland, CA
Timothy R. Neuman
CH2M HILL
Chicago, IL
Subject Areas
Safety and Human Performance
Research sponsored by the American Association of State Highway and Transportation Officials
in cooperation with the Federal Highway Administration
TRANSPORTATION RESEARCH BOARD
WASHINGTON, D.C.
2008
www.TRB.org
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NATIONAL COOPERATIVE HIGHWAY NCHRP REPORT 500, VOLUME 21
RESEARCH PROGRAM
Systematic, well-designed research provides the most effective Project 17-18(3)
approach to the solution of many problems facing highway ISSN 0077-5614
administrators and engineers. Often, highway problems are of local ISBN: 978-0-309-11743-2
interest and can best be studied by highway departments individually Library of Congress Control Number 2008904443
or in cooperation with their state universities and others. However, the © 2008 Transportation Research Board
accelerating growth of highway transportation develops increasingly
complex problems of wide interest to highway authorities. These
problems are best studied through a coordinated program of COPYRIGHT PERMISSION
cooperative research.
Authors herein are responsible for the authenticity of their materials and for obtaining
In recognition of these needs, the highway administrators of the written permissions from publishers or persons who own the copyright to any previously
American Association of State Highway and Transportation Officials published or copyrighted material used herein.
initiated in 1962 an objective national highway research program Cooperative Research Programs (CRP) grants permission to reproduce material in this
employing modern scientific techniques. This program is supported on publication for classroom and not-for-profit purposes. Permission is given with the
understanding that none of the material will be used to imply TRB, AASHTO, FAA, FHWA,
a continuing basis by funds from participating member states of the
FMCSA, FTA, or Transit Development Corporation endorsement of a particular product,
Association and it receives the full cooperation and support of the method, or practice. It is expected that those reproducing the material in this document for
Federal Highway Administration, United States Department of educational and not-for-profit uses will give appropriate acknowledgment of the source of
any reprinted or reproduced material. For other uses of the material, request permission
Transportation.
from CRP.
The Transportation Research Board of the National Academies was
requested by the Association to administer the research program
because of the Board's recognized objectivity and understanding of
NOTICE
modern research practices. The Board is uniquely suited for this
purpose as it maintains an extensive committee structure from which The project that is the subject of this report was a part of the National Cooperative Highway
Research Program conducted by the Transportation Research Board with the approval of
authorities on any highway transportation subject may be drawn; it the Governing Board of the National Research Council. Such approval reflects the
possesses avenues of communications and cooperation with federal, Governing Board's judgment that the program concerned is of national importance and
state and local governmental agencies, universities, and industry; its appropriate with respect to both the purposes and resources of the National Research
Council.
relationship to the National Research Council is an insurance of
The members of the technical committee selected to monitor this project and to review this
objectivity; it maintains a full-time research correlation staff of
report were chosen for recognized scholarly competence and with due consideration for the
specialists in highway transportation matters to bring the findings of balance of disciplines appropriate to the project. The opinions and conclusions expressed
research directly to those who are in a position to use them. or implied are those of the research agency that performed the research, and, while they have
been accepted as appropriate by the technical committee, they are not necessarily those of
The program is developed on the basis of research needs identified
the Transportation Research Board, the National Research Council, the American
by chief administrators of the highway and transportation departments Association of State Highway and Transportation Officials, or the Federal Highway
and by committees of AASHTO. Each year, specific areas of research Administration, U.S. Department of Transportation.
needs to be included in the program are proposed to the National Each report is reviewed and accepted for publication by the technical committee according
Research Council and the Board by the American Association of State to procedures established and monitored by the Transportation Research Board Executive
Committee and the Governing Board of the National Research Council.
Highway and Transportation Officials. Research projects to fulfill these
needs are defined by the Board, and qualified research agencies are The Transportation Research Board of the National Academies, the National Research
Council, the Federal Highway Administration, the American Association of State Highway
selected from those that have submitted proposals. Administration and and Transportation Officials, and the individual states participating in the National
surveillance of research contracts are the responsibilities of the National Cooperative Highway Research Program do not endorse products or manufacturers. Trade
Research Council and the Transportation Research Board. or manufacturers' names appear herein solely because they are considered essential to the
object of this report.
The needs for highway research are many, and the National
Cooperative Highway Research Program can make significant
contributions to the solution of highway transportation problems of
mutual concern to many responsible groups. The program, however, is
intended to complement rather than to substitute for or duplicate other
highway research programs.
Published reports of the
NATIONAL COOPERATIVE HIGHWAY RESEARCH PROGRAM
are available from:
Transportation Research Board
Business Office
500 Fifth Street, NW
Washington, DC 20001
and can be ordered through the Internet at:
http://www.national-academies.org/trb/bookstore
Printed in the United States of America
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COOPERATIVE RESEARCH PROGRAMS
CRP STAFF FOR NCHRP REPORT 500, VOLUME 21
Christopher W. Jenks, Director, Cooperative Research Programs
Crawford F. Jencks, Deputy Director, Cooperative Research Programs
Charles W. Niessner, Senior Program Officer
Eileen P. Delaney, Director of Publications
Natassja Linzau, Editor
NCHRP PROJECT 17-18(3) PANEL
Field of Traffic--Area of Safety
Thomas E. Bryer, Science Applications International Corporation, Camp Hill, PA (Chair)
Jasvinderjit "Jesse" Bhullar, California DOT
Linda A. Cosgrove, National Highway Traffic Safety Administration
Troy Costales, Oregon DOT
Leanna Depue, Missouri DOT
L. Keith Golden, Georgia DOT
Barbara Harsha, Governors Highway Safety Association, Washington, DC
Bruce Ibarguen, Maine DOT
Marlene Markison, National Highway Traffic Safety Administration
Margaret "Meg" Moore, Texas DOT
Kathryn R. Swanson, Minnesota Department of Public Safety, St. Paul, MN
Rudy Umbs, FHWA
Thomas M. Welch, Iowa DOT
Ray Krammes, FHWA Liaison
Ken Kobetsky, AASHTO Liaison
Richard Pain, TRB Liaison
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FOREWORD
By Charles W. Niessner
Staff Officer
Transportation Research Board
The American Association of State Highway and Transportation Officials (AASHTO) has
adopted a national highway safety goal of halving fatalities over the next 2 decades; or reduc-
ing fatalities by 1000 per year. This goal can be achieved through the widespread applica-
tion of low-cost, proven countermeasures that reduce the number of crashes on the nation's
highways. This twenty-first volume of NCHRP Report 500: Guidance for Implementation of
the AASHTO Strategic Highway Safety Plan provides guidance on data sources and analysis
techniques that can be employed to assist agencies in allocating safety funds. The report will
be of particular interest to safety practitioners with responsibility for implementing pro-
grams to reduce injuries and fatalities on the highway system.
In 1998, AASHTO approved its Strategic Highway Safety Plan, which was developed by the
AASHTO Standing Committee for Highway Traffic Safety with the assistance of the Federal
Highway Administration, the National Highway Traffic Safety Administration, and the Trans-
portation Research Board Committee on Transportation Safety Management. The plan
includes strategies in 22 key emphasis areas that affect highway safety. Each of the 22 empha-
sis areas includes strategies and an outline of what is needed to implement each strategy.
NCHRP Project 17-18(3) is developing a series of guides to assist state and local agencies
in reducing injuries and fatalities in targeted areas. The guides correspond to the emphasis
areas outlined in the AASHTO Strategic Highway Safety Plan. Each guide includes a brief
introduction, a general description of the problem, the strategies/countermeasures to
address the problem, and a model implementation process.
This is the twenty-first volume of NCHRP Report 500: Guidance for Implementation of the
AASHTO Strategic Highway Safety Plan, a series in which relevant information is assembled
into single concise volumes, each pertaining to specific types of highway crashes (e.g., run-
off-the-road, head-on) or contributing factors (e.g., aggressive driving). An expanded ver-
sion of each volume with additional reference material and links to other information
sources is available on the AASHTO Web site at http://safety.transportation.org. Future
volumes of the report will be published and linked to the Web site as they are completed.
While each volume includes countermeasures for dealing with particular crash emphasis
areas, NCHRP Report 501: Integrated Management Process to Reduce Highway Injuries and
Fatalities Statewide provides an overall framework for coordinating a safety program. The
integrated management process comprises the necessary steps for advancing from crash
data to integrated action plans. The process includes methodologies to aid the practitioner
in problem identification, resource optimization, and performance measurements.
Together, the management process and the guides provide a comprehensive set of tools for
managing a coordinated highway safety program.
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CONTENTS
1 Summary
5 Section I Introduction
6 Introduction to Proposed Procedures
8 Section II Data Types Used in Preparing the Safety Plan
8 Crash Data and Related Files
11 Roadway Inventory Data
12 Traffic Volume Data
12 Driver History Files
13 Vehicle Registration Files
13 Statewide Injury Surveillance System Files
13 National Emergency Medical Services Information System (NEMSIS)
14 Population Census Files
14 Citation Tracking and DUI Tracking Files
14 Local Data Files
15 Other Safety Files
15 Time Dimension of Data
15 Closure
16 Section III Details of the Three-Stage Process
16 Stage 1--Define/Choose One or More Issues/Emphasis Areas
17 Stage 2--Set a Crash, Injury or Death Reduction Goal for an Emphasis Area
17 Stage 3--Define Treatment Strategies and Target Populations
27 Other Safety Analysis Tools
27 Summary
28 Section IV Roadway Segment Programs
28 Possible Program Types--Spot versus System Programs
29 Procedure 1--Choosing Roadway-Based Treatments and Target Populations
When Treatment Effectiveness Is Known, and Both Crash and Non-Crash
Data Are Available
34 Procedure 2A--Choosing Roadway-Based Treatments and Target Populations
When Treatment Effectiveness Is Known and Mileposted Crash Data Are
Available, but Detailed Inventory Data Are Not Available
36 Procedure 2B--Choosing Roadway-Based Treatments and Target Populations
When Treatment Effectiveness Is Known and Neither Mileposted Crash Data
nor Detailed Inventory Data Are Available
38 Procedure 3--Choosing Roadway Treatments and Target Locations When
Treatment Effectiveness in Terms of Crash/Injury Reduction Is Not Known
40 Procedure 4--Choosing Treatments and Target Populations in Emphasis Areas
for which Some Candidate Treatments Have Known Effectiveness Estimates
and Other Treatments Do Not
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42 Section V Roadway Junctions
42 Possible Program Types--Spot versus System Programs
43 Procedure 1--Choosing Intersection Treatments and Target Populations
When Treatment Effectiveness Is Known, and Both Crash and Non-Crash
Data Are Available
47 Procedure 2A--Choosing Intersection Treatments and Target Populations
When Treatment Effectiveness Is Known and Mileposted Crash Data Are
Available, but Detailed Inventory Data Are Not Available
49 Procedure 2B--Choosing Intersection Treatments and Target Populations
When Treatment Effectiveness Is Known and Neither Mileposted Crash Data
nor Detailed Inventory Data Are Available
50 Procedure 3--Choosing Intersection Treatments and Target Locations When
Treatment Effectiveness in Terms of Crash/Injury Reduction Is Not Known
53 Procedure 4--Choosing Treatments and Target Populations in Emphasis Areas
for which Some Candidate Treatments Have Known Effectiveness Estimates
and Other Treatments Do Not
54 Section VI Special Road User Populations
54 Procedure 3--Choosing Roadway User Treatments and Target Subgroups
When Treatment Effectiveness in Terms of Crash/Injury Reduction Is
Not Known
58 Closure--Good Data Produce Better Results
59 Section VII Illegal Driver Actions
59 General Strategic Considerations
60 Procedure 3--Choosing Treatments and Target Subgroups Related To Illegal
Driving Actions When Treatment Effectiveness in Terms of Crash/Injury
Reduction Is Unknown
64 Alternative Economic Analysis Procedure--Choosing Treatments and Target
Subgroups for Alcohol-Related Crash Strategies When Treatment Effective-
ness in Terms of Alcohol-Related Crash/Injury Reduction Can Be Estimated
66 Alternative Procedure--Choosing Treatments and Target Subgroups for
Alcohol-Related Crash Strategies Based On Existing DWI Program Needs
67 Closure
68 Section VIII Unsafe Driver Actions
68 General Strategic Considerations
69 Procedure 3--Choosing Treatments and Target Subgroups Related To
Unsafe Driving Actions When Treatment Effectiveness in Terms of
Crash/Injury Reduction Is Unknown
73 Closure
74 Section IX Special Vehicles
74 Procedure 3--Choosing Treatments and Target Subgroups for Crashes
Involving Special Vehicle Types When Treatment Effectiveness in Terms
of Crash/Injury Reduction Is Not Known
78 Closure--Good Data Produce Better Results
79 Section X Reducing Crashes in Work Zones
80 Level 1 Analysis
82 Level 2 Analysis
84 Level 3 Analysis
84 Level 4 Analysis
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86 Section XI Reducing Death and Injury Consequences
Through Improved Rural EMS Services
86 Data Needs
86 Procedure
89 Closure
90 Section XII Data Improvements and What They Can Do
for You
90 Organizational Issues
91 Data Improvement Strategies
93 Closure--Good Data Produce Better Results
94 Key References
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ACKNOWLEDGMENTS
This volume of NCHRP Report 500 was developed under NCHRP Project 17-18(3), the
product of which is a series of implementation guides addressing the emphasis areas of
AASHTO's Strategic Highway Safety Plan. The project was managed by CH2M HILL,
and the co-principal investigators were Ron Pfefer of Maron Engineering and Kevin Slack
of CH2M HILL. Timothy Neuman of CH2M HILL served as the overall project director
for the team. Kelly Hardy, also of CH2M HILL, served as a technical specialist on the
development of the guides.
The project team was organized around the specialized technical content contained in
each guide, and the overall team included nationally recognized experts from many
organizations. The following team of experts, selected for their knowledge of this
emphasis area, served as lead authors for this guide:
· Forrest M. Council · Barbara Hilger Delucia
Vanasse Hangen Brustlin, Inc. Data Nexus, Inc.
· Douglas W. Harwood, Ingrid B. Potts, · Raymond C. Peck
Darren J. Torbic, Jerry L. Graham R.C. Peck and Associates
and Jessica M. Hutton · Timothy R. Neuman
Midwest Research Institute CH2M HILL
Development of the volumes of NCHRP Report 500 used the resources and expertise of
many professionals from around the country and overseas. Through research, workshops,
and actual demonstration of the guides by agencies, the resulting documents represent
best practices in each emphasis area. The project team is grateful to the following list of
people and their agencies for supporting the project by providing material, participating
in workshops and meetings, and providing input and comments during the development
of the young driver guide:
Federal Highway Maryland Motor National Highway Traffic
Administration Vehicle Administration Safety Administration
Mike Griffith Jack Joyce Don McNamara
Robert Pollack
Missouri DOT Ohio Department of
Florida DOT Mike Curtit Public Safety
Patrick Brady, P.E. Tim Erskine
National Association of
Georgia DOT State EMS Directors Ohio DOT
Norm Cressman Kevin McGinnis Dave Holstein
Iowa DOT, Office of
Traffic and Safety
Michael Pawlovich, PhD
