STATE OF FLORIDA
PEDESTRIAN SAFETY PROGRAM
TECHNICAL ASSESSMENT
JANUARY 8-13, 2012
Technical Assessment Team
George Branyan
Susan Bryant
John Ciccarelli
Peter Moe
Mark Plotz
Florida Pedestrian Safety Technical Assessment
Table of Contents
TEAM MEMBER SIGNATURES ................................................................................................. 3
PRIORITY RECOMMENDATIONS ............................................................................................ 4
ACKNOWLEDGMENTS .............................................................................................................. 7
INTRODUCTION .......................................................................................................................... 8
I. PROGRAM MANAGEMENT.................................................................................................. 11
Status and Recommendations ....................................................................................................... 11
II. MULTIDISCIPLINARY INVOLVEMENT ........................................................................... 21
Status and Recommendations ....................................................................................................... 21
III. LEGISLATION, REGULATION, AND POLICY ................................................................ 30
Status and Recommendations ....................................................................................................... 30
IV. LAW ENFORCEMENT......................................................................................................... 33
Status and Recommendations ....................................................................................................... 33
V. HIGHWAY AND TRAFFIC ENGINEERING ....................................................................... 37
Status and Recommendations ....................................................................................................... 37
VI. COMMUNICATION PROGRAM......................................................................................... 45
Status and Recommendations ....................................................................................................... 45
VII. OUTREACH PROGRAM .................................................................................................... 50
Status and Recommendations ....................................................................................................... 50
VIII. DRIVER EDUCATION AND LICENSING....................................................................... 58
Status and Recommendations ....................................................................................................... 58
IX. EVALUATION PROGRAM.................................................................................................. 60
Status and Recommendations ....................................................................................................... 60
CREDENTIALS OF ASSESSMENT TEAM .............................................................................. 66
INTERVIEW SCHEDULE .......................................................................................................... 69
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FLORIDA STATE PEDESTRIAN SAFETY PROGRAM TECHNICAL ASSESSMENT
Team Member Signatures
The statements made in this report are based on the input received. Pre-established standards and
the combined experience of the team members were applied to the information gathered. All
team members agree with the recommendations as presented.
__________________________
Peter Moe
___________________________
George Branyan
___________________________
Susan Bryant
___________________________
John Ciccarelli
___________________________
Mark Plotz
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Priority Recommendations
I. Program Management
•
Develop a model methodology for the use of crash data for problem identification to
support the development of local pedestrian safety programs, incorporating input from
FDOT state and District staff, regional and local agency staff with pedestrian data
analysis expertise, and nontraditional partners such as public health epidemiologists.
•
Create and implement a 3-year Strategic Plan for Pedestrian Safety that:
o is data-driven;
o has clear goals for overall injury and fatality reduction;
o is developed with the active involvement of stakeholders from the State, regional and
local levels, and representing the fields of engineering, education and enforcement;
o is focused on implementing proven countermeasures and best practices; and
o identifies specific priorities; and articulates specific action steps and milestones
against which to measure progress.
•
To guide the implementation of the new strategic pedestrian safety plan to identify and
empower a lead coordinator and establish a working group to:
o monitor day to day progress,
o identify innovative approaches and best practices, and
o provide technical support to implementing agencies and organizations.
•
Develop model guidelines for pedestrian safety enforcement programs, using strategies
that have been proven to be effective.
•
Annually, in advance of solicitation of applications for pedestrian safety grants provide
detailed crash information by geographic area, with sufficient detail to enable applicants
to identify high crash locations, times and demographics to target interventions. Provide
information concurrently on proven countermeasures and innovative approaches to
applicants.
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II. Multidisciplinary Involvement
•
Create a strong statewide pedestrian safety coalition that brings together existing and
newly-developed partners to assist in the implementation of the state strategic pedestrian
safety plan.
•
Garner the official support and public endorsement (e.g. resolutions) of all partners,
particularly those representing the major enforcement agencies including the Florida
Sheriffs Association and the Florida Police Chiefs Association for the statewide strategic
pedestrian safety plan.
IV. Law Enforcement
•
Conduct high visibility pedestrian safety enforcement campaigns in areas of the state
where pedestrian crashes and fatalities are overrepresented. Use proven countermeasures
such as the Courtesy Promotes Safety program and the Miami-Dade Pedestrian Safety
Demonstration Study.
V. Highway and Traffic Engineering
•
In urban and suburban areas where pedestrian crossing demand exists on multi-lane
streets without center turn lanes, prioritize evaluation of those streets for lane reduction
conversions to create center turn lanes with median islands.
VI. Communication Program
•
Develop a statewide strategic communications plan that will support the pedestrian safety
directives of the new Strategic Highway Safety Plan and the Statewide Strategic
Pedestrian Safety Plan. The plan should:
o utilize the Florida Department of Transportation Public Information & Outreach
office, and similar offices from partners in the Strategic Highway Safety Plan
such as the Florida Highway Patrol, Office of Injury Prevention, and nongovernment organizations such as AAA, and AARP to communicate pedestrian
safety messages.
o develop collateral materials that are consistent in appearance to PSAs, social
media, printed materials, etc.
o develop new materials with the assistance of knowledgeable state and local
partners.
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Florida Pedestrian Safety Technical Assessment
o target program campaign materials and messages toward specific audiences (e.g.
motorists and pedestrians) and focus group test those messages and materials on
those audiences.
VII. Outreach Program
•
Significantly expand the programs and materials available for identified, at-risk
populations, ensuring their cultural sensitivity, appropriateness, usability, and desirability
by using focus groups, developing material specifically for those populations (vs. English
translations), and testing for receptivity and results.
VIII. Driver Education and Licensing
•
Ensure that pedestrian safety information is fully incorporated in each aspect of driver
education, training and licensing.
IX. Evaluation Program
•
Develop and deploy a simple survey tool to assess citizens’ knowledge of Florida
traffic law and their attitudes toward pedestrian safety issues, and to gather
information about their behavior as pedestrians and motorists.
•
Publish an annual report card on pedestrian crashes within the State, with
comparisons to national averages. This publication should include a progress report
on the implementation of the statewide strategic pedestrian safety plan, highlighting
significant accomplishments at the state, regional and local levels.
•
Annually, develop and distribute a list of proven countermeasures and model
programs to reduce pedestrian traffic crashes, including past grant projects.
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Florida Pedestrian Safety Technical Assessment
ACKNOWLEDGMENTS
The Assessment Team wishes to thank Secretary Ananth Prasad for his leadership on the issue of
traffic safety and his commitment to reducing the pedestrian-involved crashes, injuries and
fatalities in the state of Florida.
The Assessment Team also acknowledges and thanks Lora Hollingsworth, P.E., Ken Ellis and
Trenda McPherson, Florida Department of Transportation Safety Office and Dr. Pei-Sung Lin,
Achilleas Kourtellis, Kelly Douglass and Kristen Larsson of the University of South Florida,
Center for Urban Transportation Research (CUTR) for their hard work and support in making
this assessment possible.
The Assessment Team also acknowledges Leah Walton, Program Analyst, and Sandy
Richardson, Regional Program Manager, from the National Highway Traffic Safety
Administration (NHTSA), and Craig Allred, Transportation Specialist, Federal Highway
Administration for their assistance in facilitating this assessment. The Assessment Team believes
that this report will contribute to the State’s efforts to make pedestrian safety a priority in the
state and to save lives, and to reduce the social and economic costs of pedestrian-related crashes
on Florida’s streets and highways.
The Assessment Team also extends its appreciation and thanks to the many interview
participants who provided information, data, and documents that were necessary to conduct an
effective assessment. Their candor and thoroughness in discussing activities associated with
pedestrian safety in Florida was essential to the Assessment Team in completing its review and
making its recommendations. The Assessment Team recognizes the commitment of all those
involved in making walking safer in Florida and hopes that this report will further those efforts.
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Florida Pedestrian Safety Technical Assessment
Introduction
Each year in the United States, more than 30,000 people are killed in motor vehicle crashes. Of
these deaths, more than 4,000 are pedestrians, on average. In 2009, the last year for which
complete national data is available, pedestrians accounted for just three percent of all traffic
injuries nationwide. They accounted for more than 12 percent of traffic fatalities.
To prevent such tragic outcomes, each State should have a comprehensive program to promote
pedestrian safety and prevent pedestrian crashes and related injuries. To guide states in
developing comprehensive pedestrian safety programs, the National Highway Traffic Safety
Administration (NHTSA) developed Highway Safety Program Guideline Number 14: Pedestrian
and Bicyclist Safety. This guideline includes model program elements in 10 areas: Program
Management, Multidisciplinary Involvement, Legislation, Regulation and Policy, Law
Enforcement, Highway and Traffic Engineering, Communication Program, Outreach Program,
Driver Education and Licensing, and Evaluation Program.
To assist states in evaluating the progress of their programs, NHTSA developed a pedestrian
safety assessment process. At a state’s request, NHTSA assembles a multidisciplinary Technical
Assessment Team of national experts which conducts a thorough review of the state’s safety
efforts, evaluates the status of these efforts in comparison to the program guidelines, and
provides recommendations to enhance the effectiveness of the state’s program. Florida is the
second state to conduct such an assessment for a pedestrian program.
NHTSA’s assistance in assessing Florida’s pedestrian safety efforts was requested by the Florida
Department of Transportation (FDOT) State Safety Office (SSO). Representatives from NHTSA
met with SSO staff to define key issues of concern to the State prior to the assessment.
The Florida Pedestrian Safety Program Technical Assessment was conducted in Tallahassee,
Florida from January 8 - 13, 2012. In preparation for the assessment, a briefing book was
prepared for the SSO by the University of South Florida, Center for Urban Transportation
Research. During the assessment, more than 50 program experts from state, regional and local
agencies, and organizations participated in briefing sessions and provided support materials to
the Assessment Team.
Analysis of Florida’s pedestrian safety effort is based upon information provided in the briefing
book, on oral testimony and materials presented during and following the briefing sessions, and
through information gathered from publicly available Internet websites. The Assessment Team
notes that this report is only as accurate as the information received at the time of the assessment.
Every effort was made to develop recommendations after thoughtful consideration of what could
and should reasonably be accomplished within the state of Florida, with short- and long-term
applicability.
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The recommendations included in this report reflect the Assessment Team’s perspective that a
model pedestrian safety program: uses traffic crash records and other data to target high priority
areas, issues and populations; employs evidence-based countermeasures; and fosters
collaborative and cooperative approaches at the state, regional and local levels to address
pedestrian safety through engineering improvements, high visibility enforcement, targeted
education and objective evaluation.
While the focus of this assessment is pedestrian safety in the transportation context, the
Assessment Team notes that other issues outside the scope of this report, such as land use and
development patterns, can and do affect pedestrian safety outcomes and encourages the State to
pursue all means available to produce environments and conditions that promote improved
pedestrian safety and access.
BACKGROUND
The U.S. Census Bureau estimates that, in 2010, Florida’s population was 18,801,310, of whom
22.5 percent were of Hispanic or Latino origin and 16 percent were Black 1. According to these
same estimates, Florida’s population increased by 17 percent from 2000 to 2010. Florida ranks
10th in the nation in population density, with an estimated 350.6 people per square mile 2, more
than four times the national average. Florida is comprised of 67 counties; however, more than 40
percent of its population lives in just five counties: Miami-Dade, Broward, Palm Beach,
Hillsborough, and Orange.
On a population basis, Florida has the highest pedestrian fatality rate in the country, at 2.51
fatalities per 100,000 population, compared to the national average rate of 1.33 3. Nearly 40
percent of all pedestrian fatalities (39.5%) occurred in the five most populous counties. In 2009,
pedestrian fatalities comprised nearly 19 percent of the State’s traffic fatalities. In one analysis of
the nation’s largest metropolitan areas, the four most dangerous regions 4 in the country for
pedestrians were in Florida.
The state of Florida has undertaken a number of initiatives over several decades to improve the
safety of Florida’s transportation network for pedestrians, and these initiatives and efforts are to
be recognized and commended. Still, more can and must be done to reduce the incidence and
severity of pedestrian traffic crashes in the State.
The Assessment Team strongly encourages the state of Florida and all stakeholders in the
pedestrian safety community to implement the recommendations made in this report. There is a
1
http://quickfacts.census.gov/qfd/states/12000.html
http://2010.census.gov/2010census/data/apportionment-dens-text.php
3
NHTSA, Traffic Safety Facts, 2009 Data, DOT HS 811 394.
4
Transportation for America, Dangerous by Design, 2011, Washington, DC.
2
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need for Florida to enhance its pedestrian safety program by adopting and incorporating all of the
emphasis areas associated with a comprehensive pedestrian safety program.
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I. Program Management
Each State should have centralized program planning, implementation, and coordination to
promote pedestrian safety program issues as part of a comprehensive highway safety program.
Evaluation should be used to revise existing programs, develop new programs, and determine
progress and success of pedestrian safety programs.
The lead State agency responsible for the statewide pedestrian safety program should:
•
•
•
•
•
•
Train program staff to effectively coordinate the implementation of recommended
activities;
Provide leadership, training, and technical assistance to other State agencies and local
pedestrian safety programs and projects;
Coordinate with the State Department of Transportation to ensure provision of a safe
environment for pedestrians through engineering measures such as sidewalks in the
planning and design of all highway projects;
Conduct regular problem identification and evaluation activities to determine pedestrian
fatality, injury, and crash trends and to provide guidance in development and
implementation of countermeasures;
Support the enforcement by local enforcement agencies of State laws affecting
pedestrians; and
Develop safety initiatives to reduce fatalities and injuries among high-risk groups as
indicated by crash and injury data trends, including children, older adults, and alcoholimpaired pedestrians.
Status and Recommendations
Problem identification and development and implementation of countermeasures.
STATUS
Crash data is collected by law enforcement agencies across the state using one of two forms – a
short form used for less serious crashes and a long form which is used for more serious crashes
involving injury or death – and transmitted to the Florida Department of Highway Safety and
Motor Vehicles (DHSMV) for aggregation. Each night data are transferred from DHSMV to
Florida Department of Transportation (FDOT). Only long form crash reports are currently
transferred to FDOT and available to be joined with the roadway data file for analysis.
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As of September 2011, 130 of Florida’s law enforcement agencies were reporting crashes
electronically5. Crash data are generally available within three months of the date of the crash. A
final closeout of the crash data file is typically complete within six months of the end of the
calendar year. Fatal Analysis Reporting System (FARS) data by federal rule remain open until
one year after the close of the calendar crash year.
Additional data related to pedestrian injuries, including more detailed information on specific
injury types and the relative cost associated with pedestrian injury treatment, are collected by
hospitals and emergency medical service providers.
On an annual basis, FDOT State Safety Office (SSO) provides county level crash matrices to
Community Traffic Safety Team (CTST) Coordinators and to SSO Traffic Safety Section (TSS)
grant applicants, which enables them to identify the relative priority of pedestrian problems in
comparison to other traffic safety program areas within their district, county or city. However,
no further data breakdown or detail is provided as a matter of course to the TSS grant applicants.
As a part of the Highway Safety Improvement Program (HSIP), the SSO provides a listing of
high crash locations (the Five Percent Report) to FDOT District Offices and other affected
regional and local agencies. In addition, the SSO provides a detailed crash summary report to
each District Safety Engineer/Manager identifying high crash segments and intersections on the
State Highway System. Five-year crash trend reports for fatalities and serious injuries are
provided, focused on the emphasis areas of the Strategic Highway Safety Plan (SHSP). In
addition to supplying this data, the SSO maintains the Crash Reduction Analysis System Hub
(CRASH), a web-based application developed mainly for the selection and evaluation of
highway safety improvement projects. This system is used by District staff to evaluate potential
infrastructure countermeasures that may be included in the HSIP.
Several program representatives interviewed indicated that they analyzed crashes using local
data to identify problem areas and issues. Methods varied from basic annual trend analysis to
relatively sophisticated techniques involving research protocols or special problem identification
software such as the Pedestrian Bicycle Crash Analysis Tool (PBCAT).
Through the Florida Traffic Records Coordinating Committee (TRCC) and the Statewide Injury
Prevention Coalition, state partners with a common interest in traffic safety share data and
exchange ideas on ways to improve data access and analysis.
5
Minutes of the Traffic Records Coordinating Committee, September 15, 2011
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The analysis of crash data at the statewide level for problem identification in the HSIP and for
the TSS grant program appear to be separate and isolated at the state office level. Coordination
between these funding programs more typically occurs at the District Level.
ANALYSIS
Problem identification is the first and most critical step in the development of any pedestrian
safety initiative. Different levels of data detail or different data sets may be appropriate at each
stage of problem identification. At the Statewide level, a preliminary screening analysis may
identify geographic areas with a high density of pedestrian crashes (typically urban areas). This
level of analysis may also identify problems on particular elements of the highway system, for
example multilane urban arterials.
Local-level problem identification and countermeasure development requires more detail and
should use data from the specific geographic area under study. Even within the same county or
metropolitan area, problems are typically location- specific.
Effective countermeasure selection requires this level of analysis. In order to make the best use
of limited resources, data must be used to properly identify the pedestrian safety problem so that
a combination of engineering, enforcement and education countermeasures can be selected that
best address the problem.
The data reports provided to the Assessment Team combine fatal and serious injury crashes.
However, pedestrian traffic fatalities and injuries often differ in their location and contributing
factors. For example, alcohol involvement may be significantly higher in fatal pedestrian
crashes than in injury crashes. Likewise, geographic, demographic or roadway characteristics
may differ.
Past surveys by the Florida Traffic Records Coordinating Committee indicate that a wide range
of data users would like to have enhanced, independent (online) access to crash data analysis
tools and would use those tools to better target traffic safety programs.
Pedestrian safety is a problem that can and should be addressed using a combination of
countermeasures including engineering, education and enforcement (the three Es). When
problem identification is isolated within any of these disciplines, the analyses may reach
different or contradictory conclusions about the nature and causes of crashes. Therefore, the
identification of pedestrian safety problems should involve expertise in all of the three Es, should
incorporate evaluation, and should occur at the level at which the interventions are being planned
(e.g., at an MPO or county level). In this way, a common problem can be identified and a
consensus reached as to how best to invest limited resources.
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Resources are available for data-driven countermeasure selection that includes all of the three Es.
The Pedestrian Safety Guide and Countermeasure Selection System (PEDSAFE) online resource
and document provide an expert system for identifying potential countermeasures. USDOT’s
How to Develop a Pedestrian Safety Action Plan (PSAP) also provides valuable information, and
several communities in Florida have developed their own PSAPs using this document. Both
resources are listed on the Florida Bicycle and Pedestrian Resource Center resource webpage,
but no link is provided to electronic versions of these documents or to websites that contain
interactive versions. NHTSA’s Countermeasures that Work is a standard reference for highway
safety office staff, but this reference is not included in the resource center database.
RECOMMENDATIONS
•
Create a central repository for all crash data including short form reports.
•
Provide access to short form crash reports to Florida Department of Transportation
(FDOT) to enhance highway safety problem identification and countermeasure selection
for pedestrian safety.
•
Develop a model methodology for the use of crash data for problem identification to
support the development of local pedestrian safety programs, incorporating input
from FDOT state and District staff, regional and local agency staff with pedestrian
data analysis expertise, and nontraditional partners such as public health
epidemiologists.
•
Provide access to regional, county and city-level crash data, including spatial maps, to
Traffic Safety Section grant applicants and other highway safety partners with sufficient
detail to inform selection and targeting of behavioral countermeasures.
•
Provide a central online technical assistance resource site to:
o promote awareness of the pedestrian and bicycle strategies of the SHSP
o provide links to available data related to pedestrian crashes
o provide resources for problem identification, countermeasure selection, and best
practices
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Provide leadership, training, and technical assistance to other State agencies and local
pedestrian and bicycle safety programs and projects.
STATUS
In September 2006, Florida adopted a Strategic Highway Safety Plan (SHSP) that included four
major emphasis areas: Aggressive Driving, Intersection Crashes, Vulnerable Road Users
(including pedestrians, bicyclists and motorcyclists) and Roadway Departure. The SHSP
incorporated a Memorandum of Understanding among 13 state and federal agencies,
representing transportation, enforcement, education, health and regional planning. The plan
included specific strategies to improve pedestrian safety. Although there is an online SHSP
implementation tracking tool, is it difficult to assess the extent to which the strategies pertaining
to pedestrian safety were implemented and the outcomes of those efforts. A revision of the
SHSP has begun.
The FDOT State Safety Office requested this Pedestrian Safety Program Technical Assessment
to provide the State with additional input on how best to develop a comprehensive pedestrian
safety program. FDOT has committed to implementing the recommendations from the
assessment report.
In December 2011, Florida Transportation Secretary Prasad announced the appointment of
District 1 Secretary Billy Hattaway as the executive sponsor of a special initiative for pedestrian
safety. This designation elevates the importance of pedestrian safety within the agency, and
raises the visibility of pedestrian safety efforts in the State. Discussions have begun between
Secretary Hattaway and other FDOT senior managers as to what can and should be done to drive
down the number of pedestrian injuries and fatalities.
There are a number of initiatives and efforts underway both within FDOT and among regional
and local agencies and organizations focused on pedestrian safety. Many of these are discussed
in other sections of this report. However, a statewide strategic plan specifically for pedestrian
safety does not exist.
Many participants in the briefings indicated that they had regular contact with the FDOT TSS
Pedestrian Safety Program Manager as a source for information and guidance on behavioral
safety programs. Participants also discussed the Bicycle and Pedestrian Partnership Council led
by FDOT Office of Planning which has a strong emphasis on the engineering and planning
component of pedestrian safety.
ANALYSIS
Leadership and support from the highest levels is critical to the initial and long-term success of a
new initiative. The designation of Secretary Hattaway as the executive sponsor of the new
initiative for pedestrian safety is extremely important, as it sets an expectation that change will
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occur and progress will be made. FDOT is to be commended for being a champion for
pedestrian safety. The success of a statewide campaign will also require senior level support
from a range of agencies and organizations external to FDOT. This includes elected officials,
representatives from statewide associations and organizations such as the Florida Metropolitan
Planning Organization Advisory Council, the American Automobile Association, and others.
In addition to this top-level leadership, increased coordination at the subject matter expert level
is also required to provide direction to each of the disciplines of education, enforcement,
engineering and evaluation and to promote collaboration among the disciplines. During the
briefing sessions, the Assessment Team observed “disconnects” between individuals and
agencies working on similar issues. Some were not aware of the efforts of others, did not have
the same information, or were pursuing divergent approaches to the same issue. To a degree,
this is to be expected where initiatives are undertaken in different geographic areas or in different
disciplines. However, at a time when capital and human resources are severely constrained, it is
imperative to maximize the effectiveness of investments to improve conditions for pedestrians
through communication, collaboration and coordination.
Current state of the practice in highway safety, and pedestrian safety in particular, is to use a
combination of approaches to solve an identified problem. Even where an engineering
countermeasure may show some improvement, the addition of high visibility enforcement and
targeted education may significantly increase the safety benefit to road users.
Routine collaboration between pedestrian safety stakeholders throughout the process from
problem identification to evaluation will be new to some. Therefore, FDOT will need to provide
consistent leadership and support to stakeholders to identify the best way to implement the new
pedestrian safety initiative.
RECOMMENDATION
•
Create and implement a 3-year Strategic Plan for Pedestrian Safety that:
o is data-driven;
o has clear goals for overall injury and fatality reduction;
o is developed with the active involvement of stakeholders from the State, regional
and local levels, and representing the fields of engineering, education and
enforcement;
o is focused on implementing proven countermeasures and best practices; and
o identifies specific priorities; and articulates specific action steps and milestones
against which to measure progress.
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Centralized program planning.
STATUS
Certain program planning functions within FDOT that impact pedestrian safety occur at the
statewide level in the State Safety Office. Other functions are performed at the District level.
The FDOT State Safety Office occupies a central role in program planning of infrastructure and
non-infrastructure pedestrian safety countermeasures, including the Highway Safety
Improvement Program (HSIP), Safe Routes to School Program, and Highway Safety
Performance Plan (HSP). Planning for these statewide programs is conducted separately,
although implementation may be coordinated at the District level through the District Safety
Engineer and Community Traffic Safety Team Coordinators.
A wide range of staff within FDOT outside the State Safety Office is tasked with implementing
measures to improve pedestrian safety. These include the Office of Roadway Design, Public
Information Office, the seven District Offices 6, Traffic Engineering and Operations Office and
others. Pedestrian safety is institutionalized in many processes and procedures both within and
outside of FDOT as the result of state legislation and policy direction over the last 25 years.
Some briefing session panelists working at the District and local levels discussed their
involvement in the full range of FDOT pedestrian safety funding streams.
ANALYSIS
Fostering communication and coordination between infrastructure and behavioral safety
professionals is a common challenge for state highway safety offices and transportation
departments. Certain issues, particularly technical details, may pertain to only one field; other
issues have obvious overlap. Pedestrians benefit immensely when policies and practices are
institutionalized into the daily work of the organization and all parties understand the processes
and outcomes.
To produce better outcomes for pedestrians in Florida, changes will need to be made within
FDOT operations. The implementation of these changes will require routine and regular
communication, coordination, and collaboration with internal and external stakeholders.
RECOMMENDATION
•
6
To guide the implementation of the new strategic pedestrian safety plan to identify and
empower a lead coordinator and establish a working group to:
o monitor day to day progress,
o identify innovative approaches and best practices, and
Not included is the Turnpike Authority on whose facilities pedestrians are generally prohibited.
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o provide technical support to implementing agencies and organizations.
Train program staff to effectively coordinate the implementation of recommended
activities.
STATUS
The incoming FDOT TSS Pedestrian Safety Program Manager participated in the pilot
presentation of the USDOT Pedestrian Safety Program Management Training Course. FDOT
TSS program managers have also received USDOT training on Highway Safety Data Analysis
and Program Evaluation.
FDOT hosted a series of training courses on Pedestrian Planning and Design in cooperation with
FHWA. Additional technical transfer and training is provided via webinars and conference calls.
CTST Coordinators are instrumental in the local planning and implementation of traffic safety
programs. It is unclear what training they receive.
ANALYSIS
Ongoing training is needed to ensure that staff are able to effectively implement new strategies
and countermeasures to improve pedestrian safety. Pedestrian safety is an inherently local issue.
CTST Coordinators are positioned to be promoters of new initiatives to key local stakeholders
and should receive adequate training and support to ensure success.
RECOMMENDATION
•
•
Define the core competencies of the Community Traffic Safety Team Coordinator
particularly as they pertain to pedestrian traffic safety and deliver training which
addresses these core competencies.
Identify opportunities for Florida Department of Transportation State Safety Office staff
to interact with program professionals in other states and promote staff involvement in
those opportunities.
Support the enforcement by local enforcement agencies of State laws affecting pedestrians
and bicyclists.
STATUS
The FDOT Safety Office has funded the Florida Pedestrian and Bicycle Law Enforcement
Program to develop and implement a roll call training video and web-based instruction on laws
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that impact bicycle and pedestrian safety. The office also provides funding for six full time Law
Enforcement Liaisons (LEL) and an LEL Coordinator to help promote the implementation of
various enforcement efforts for traffic safety.
The Office has also funded collateral materials for use by local law enforcement agencies, some
overtime pedestrian safety enforcement in select areas. In Federal Fiscal Year 2012, the
University of Florida’s Technology Transfer Center will identify six small to medium sized cities
that have a high rate of pedestrian crashes and will implement a crosswalk education and
enforcement campaign.
Some enforcement and education campaigns have been shown to be successful in increasing
motorist compliance with yield to pedestrian laws, including efforts in St. Petersburg and
Gainesville.
ANALYSIS
Pedestrian safety enforcement is often a low priority for law enforcement agencies. Some
incentive and/or special recruiting is sometimes needed to attract the participation of agencies at
levels that would be effective. Training on pedestrian safety laws and enforcement laws is often
needed specific to pedestrian safety laws and pedestrian enforcement operations. The
effectiveness of standalone pedestrian presentations, without the support of an associated
enforcement or engineering countermeasure, is limited.
RECOMMENDATION
•
Develop model guidelines for pedestrian safety enforcement programs, using
strategies that have been proven to be effective.
Develop safety initiatives to reduce fatalities and injuries among high-risk groups as
indicated by crash and injury data trends, including children, older adults, and alcoholimpaired pedestrians and bicyclists.
STATUS
There is currently no single public statewide pedestrian safety initiative in Florida. There are a
range of local and regional programs addressing various aspects of pedestrian safety. Specific
programs are discussed in following sections on Law Enforcement, Outreach and
Communication.
Statewide data provided in the briefing book called attention to a 44.9 percent increase in
pedestrian crashes involving persons aged 55 to 64 years between 2007 and 2009. There are no
programs specifically targeting this age group.
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Pedestrians aged 65 and older are the second largest age cohort killed as pedestrians in traffic
crashes. The Florida Department of Transportation (FDOT) Traffic Safety Section (TSS) has
issued grants in previous years to the University Of Miami School Of Medicine to expand its
Safe Crossings program to increase awareness of safe elderly pedestrian behaviors in MiamiDade County. FDOT TSS is negotiating grants to The Alliance for Aging to develop and
implement a bilingual Safe Steps-Pasos Seguros program targeting pedestrians aged 65 years and
more in Miami.
A variety of Highway Safety Grants have been made in recent years to agencies and
organizations to conduct outreach and education campaigns targeting children for both bicycle
and pedestrian safety. The Florida Department of Transportation State Safety Office also
supports the Florida Traffic and Bicycle Safety Education program, which includes specific
curricula for age subsets of school age children, including pedestrian safety training for young
children.
ANALYSIS
It is unclear whether each education and outreach program is effective in producing changes in
knowledge, attitudes, behavior or crash outcomes, although some efforts are supported by
evaluation of similar programs. These programs are discussed in more detail in Section VII
Outreach Program.
RECOMMENDATIONS
•
Annually, in advance of solicitation of applications for pedestrian safety grants,
provide detailed crash information by geographic area, with sufficient detail to
enable applicants to identify high crash locations, times and demographics to target
interventions. Provide information concurrently on proven countermeasures and
innovative approaches to applicants.
•
Develop and implement a program to formally recognize and reward model programs in
the areas of:
o education and outreach;
o enforcement;
o transportation, planning, engineering and design; and
o leadership
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II. Multidisciplinary Involvement
Pedestrian safety requires the support and coordinated activity of multidisciplinary agencies, at
both State and local levels. At a minimum, the following communities should be involved:
•
•
•
•
•
•
•
•
•
State Pedestrian/Bicycle Coordinators
Law Enforcement and Public Safety
Education
Public Health and Medicine
Driver Education and Licensing
Transportation—Engineering, Planning, Local Transit
Media and Communications
Community Safety Organizations
Nonprofit Organizations
Establish and convene a pedestrian advisory task force or coalition to organize and generate
broad-based support for pedestrian programs.
Status and Recommendations
The involvement and support of individuals and organizations representing many disciplines are
significant strengths of the Florida highway safety community. This multidisciplinary approach
brings together a wide variety of expertise and perspectives. The success of this approach is due
to an understanding of the advantages of partnerships, hard work, and a team approach fostered
by the Florida Department of Transportation (FDOT). It is also important to note that although
Florida has an extensive list of current partners, that list may not include organizations and
linkages to specific sub-populations of pedestrians that are important and, in some cases,
somewhat unique to Florida such as winter residents, out-of-state and out-of-country tourists,
non-English-speaking residents, and undocumented immigrants.
State Pedestrian/Bicycle Coordinators
The state of Florida enjoys the benefits of having several highly experienced and well-respected
coordinators with differing responsibilities for pedestrian safety functions. These coordinators
include:
•
State Pedestrian Safety Program Manager. This position resides within FDOT’s State
Safety Office (SSO) Traffic Safety Section (TSS). This individual coordinates pedestrian
behavioral programs.
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•
State Pedestrian/Bicycle Program Coordinator. This position within the SSO coordinates
the state’s Pedestrian-Bicycle Program. The program oversees the Florida School
Crossing Guard Training Program, the Florida Traffic and Bicycle Safety Education
Program, and the Safe Routes to School (SRTS) Program. 7
•
Safe Routes to School Coordinator. A fulltime SRTS Coordinator is located in the SSO.
The SRTS Coordinator works in the Pedestrian/Bike Program under the direction of the
Pedestrian/Bike Coordinator.
•
Roadway Design Pedestrian/Bicycle Coordinator. This individual is responsible for plan
review and updates, developing policy and procedures, and providing assistance to FDOT
districts and communities regarding bike/pedestrian facilities.
•
FDOT District Coordinators. The Pedestrian and Bicycle Program staff consists of
FDOT State Safety Office staff (located in Tallahassee) and FDOT District pedestrianbicycle coordinators located in each of FDOT’s seven geographic Districts. District
pedestrian-bicycle coordinators consider the pedestrian and bicycle aspects of FDOT
facilities, projects, and programs in their respective districts. 8
•
Community Traffic Safety Team (CTST) Coordinators. Each of the seven FDOT districts
designates a CTST Coordinator. This position is a state employee within the district.
While coordinators may have more than one function within the district, their primary
responsibility is to work with the various CTSTs within their respective districts,
providing assistance and helping to leverage resources on their behalf.
The sheer number of coordinators creates issues of potential overlap, questions of responsibility,
and complexities with interrelationships. Responsibilities do not always appear to be clearly
defined, and the organizational structure may not provide for a comprehensive approach to
pedestrian issues. It is also difficult to identify a focal point for pedestrian issues within the
agency.
The Transportation Secretary’s recent designation of an executive sponsor specifically for
pedestrian safety offers an excellent opportunity to establish a focal point for this priority area.
It also offers an excellent opportunity to clarify the roles of the individual coordinators and how
they should communicate, collaborate, and coordinate to achieve the goals of a comprehensive
strategic pedestrian safety program.
7
8
http://www.dot.state.fl.us/safety/ped_bike/ped_bike.shtm
http://www.dot.state.fl.us/safety/ped_bike/staff/ped_bike_staff_directory.shtm
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Law Enforcement and Public Safety
Law enforcement (LE) agencies serve in many critical ways to support pedestrian safety efforts:
•
LE (sheriffs, chiefs of police, and campus police) provides participative partners in the
CTSTs, in some instances serving in CTST leadership roles to coordinate local traffic
safety efforts.
•
LE, in a limited number of communities and sometimes utilizing grant funds, provides
critical pedestrian safety enforcement for targeted programs at high-risk locations.
•
Through community outreach and public information personnel, LE provides pedestrian
education programs and materials to schools and community groups, conducts and
participates in special events and safety fairs, and provides data and information to the
media.
•
By providing crash reports and analyses, LE provides essential data regarding pedestrian
crashes.
•
Some LE, working through bilingual officers, provide education and liaison to the
various Hispanic and Haitian-Creole communities in the State.
•
LE is a critical component of the statewide Florida Crossing Guard Program. Typically,
the agency that employs school crossing guards is a municipal police department or a
county sheriff’s office.
LE support of pedestrian safety occurs primarily at the local level. Due to the unique functions
and responsibilities of the Florida Highway Patrol (FHP), enforcement of pedestrian-related laws
is overall a relatively low priority. FHP does encourage participation in the CTSTs at the level
of sergeant or lieutenant. While LE conducts model activities in certain locales around the state,
the level of participation needed to be effective does not appear to be available in all
communities and may not be available in the highest priority communities.
Both the Florida Sheriffs Association and Florida Police Chiefs Association are partners in the
Strategic Highway Safety Plan. In addition, the Florida Sheriffs Association supports the Teen
Driver Challenge which includes a secondary emphasis on pedestrian and bicycle safety.
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Education
The Florida Department of Education (FDOE) is represented on three highway safety-related
advisory groups administered by the FDOT. Membership consists of the Commissioner of
Education’s designee.
The FDOE has responsibility for several programs that address pedestrian issues; these include
student transportation, high school driver education programs, school siting and facilities design,
and graduated driver licensing of high school students.
School standards (Next Generation Sunshine State Standards) as they relate to pedestrian safety
are discussed in Section VII Outreach Program.
Public Health and Medicine
There are strong linkages between FDOT and the Florida Department of Health (FDH). FDH
participates as a partner in development of the Strategic Highway Safety Plan and is a grantee of
the Highway Safety Plan. The FDOT Chief Safety Officer participates on the Florida Injury
Prevention Advisory Council.
The Department of Health coordinates the statewide Safe Kids™ coalition. Safe Kids™
provides information, education, materials and training in a variety of safety topics for parents,
educators, media, and safety professionals. Pedestrian safety tips and activities are included in
the available materials. For example, a pedestrian safety activity sheet is available online for
educators to use for lower elementary grade children. 9 Safe Kids ™ in Florida covers 90 percent
of the under-age-14 population with 18 coalitions. Local coalition coordinators participate, to
varying degrees, on the CTSTs.
FDH Office of Injury Prevention received a grant from the Centers for Disease Control and
Prevention (CDC) to achieve two of the goals of the Injury Prevention Strategic Plan. One of
these goals is specifically to increase collaboration on “emerging issues”. In the context of the
Injury Prevention Strategic Plan, pedestrian safety might be considered an emerging issue and
thereby be potentially eligible for greater allocation of attention and resources.
The Agency for Health Care Administration (AHCA) is the chief health policy and planning
entity for the state.
The Agency’s responsibilities include the sharing of health care data through the Florida
Center for Health Information and Policy Analysis (Florida Center). The Florida Center
9
http://www.safekids.org/safety-basics/safety-tips.html?age_group=big-kids-5-9-years&risk_area=pedestrian
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is responsible for collecting, compiling, coordinating, analyzing, and disseminating
health- related data and statistics for the purpose of developing public policy and
promoting the transparency of consumer health care information. These data provide
accurate and timely health care information to consumers, policy analysts, administrators,
and researchers in order to evaluate cost, quality, and access to care. 10
There are instances in which a hospital or individual health care provider has taken a lead role in
pedestrian and bicycle safety programs. For example, for several years the University of Miami,
Miller School of Medicine served as a grantee of the FDOT highway safety program to provide a
safe crossing program for elderly pedestrians in Miami-Dade County.
Driver Education and Licensing
The Florida Traffic and Bicycle Safety Education Program has a curriculum segment entitled,
“Driver’s Ed for Bike and Ped”. 11 The purpose of the curriculum is to increase awareness
among new and remedial motorists about laws regarding bicyclists and pedestrians. In addition,
motorists will learn how to properly share the road with both bicyclists and pedestrians.
Driver education and licensing is managed in the Department of Highway Safety and Motor
Vehicles (DHSMV). (See Section VIII Driver Education and Licensing for more detail.)
Transportation – Engineering, Planning, Local Transit
Engineering.
Engineering projects are guided by various FDOT manuals. For example, Part 2, Chapter 14 of
FDOT’s Project Development and Environment Manual is specifically dedicated to pedestrian
and bicycle facilities. The various engineering manuals serve several customers both in and
outside FDOT including planners; design, construction, and traffic engineers; and public works
officials. Engineering projects are coordinated among FDOT, metropolitan and transportation
planning organizations (MPOs and TPOs), CTSTs, and community public works offices.
(See Section V Highway and Traffic Engineering for more detail.)
Planning
FDOT Districts, MPOs, TPOs and County Commissioners develop various plans that incorporate
consideration of pedestrian safety programs and facilities. The development of these plans
requires public input from a variety of interest groups and citizens. The CTSTs, consisting of a
10
11
http://ahca.myflorida.com/SCHS/index.shtml
http://www.hhp.ufl.edu/safety/training-workshop.shtml
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multidisciplinary membership, assist in planning by helping to identify priority issues and
projects in their areas.
Transit
The Federal Transit Administration (FTA) provides grant funds through FDOT to rural and
urbanized transit agencies. FTA also provides funds directly to major metro transit systems.
These grant funds can be used to fund the design, construction, and maintenance of bicycle and
pedestrian facilities. FTA Urbanized Area Formula Funds (5307) are eligible for improved
pedestrian and bicycle access to transit facilities and vehicles. Pedestrian facilities may include
new or retrofit sidewalks and crosswalks. New FTA policy expands the catchment area in which
projects can be funded for pedestrians to one half mile. The projects funded by FDOT can be
developed through state and local transportation planning processes. 12 These projects must
compete with other capital transit projects.
Media and Communications
There was little information provided to indicate that broadcast media or communications outlets
or their personnel participate in advisory groups or coalitions. FDOT has several successful
communication models, such as Click It or Ticket, but no statewide media campaigns or
involvement of the media has been developed as yet on behalf of pedestrian safety.
(See Section VI Communication Program for more detail.)
Community Safety Organizations
Florida’s Community Traffic Safety Teams (CTSTs) are locally-based groups of highway safety
advocates who are committed to solving traffic safety problems through a comprehensive, multijurisdictional, multidisciplinary approach. Members include city, county, state, and occasionally
federal agencies, as well as private industry representatives and local citizens. 13 There are
currently 58 CTSTs that represent all 67 counties in Florida.
Nonprofit Organizations
For Seniors:
•
The American Association of Retired Persons (AARP) is a membership organization for
individuals over 50 that provides benefits and discount resources, public advocacy,
information, and community services such as driver training courses. 14 AARP was
specifically referenced during the assessment presentations as a potential partner to
12
http://www.dot.state.fl.us/planning/policy/bikeped/meetings/transit.pdf
http://www.dot.state.fl.us/safety/CTST/ctst.shtm
14
http://www.aarp.org
13
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support pedestrian safety with older walkers and drivers.
•
Area Agencies on Aging (AAAs) are private, not-for-profit entities designated by the
Older Americans Act to advocate, plan, coordinate and fund a system of elder support
services in their respective Planning and Service Areas. AAAs operate Aging and
Disability Resource Centers (ADRCs) or Aging Resource Centers (ARCs). 15 There are
eleven AAAs in Florida. The Area Agency on Aging for North Florida, Inc. and the Area
Agency on Aging of Pasco-Pinellas, Inc. are listed as members of the Safe Mobility for
Life Coalition. The Alliance for Aging, Inc. is the state-designated Area Agency on
Aging for Miami-Dade and Monroe Counties. The Alliance for Aging, Inc. is developing
a program for seniors to provide education in safe pedestrian practices.
Others:
•
Rails to Trails Conservancy (RTC) is a nonprofit organization based in Washington,
D.C., whose mission it is to create a nationwide network of trails from former rail lines
and connecting corridors to build healthier places for healthier people. RTC maintains a
field office in Florida and supports such projects as the Florida Overseas Heritage Trail. 16
•
AAA is a federation of 51 independently operated motor clubs throughout North
America. AAA is a not-for-profit member service organization with more than 51 million
members. 17 Its traffic safety-based strategies include advocacy, communication and
education. AAA makes available two pedestrian programs for children: the School
Safety Patrol Program which includes training and recognition, and WalkSafe™, a threeday education program for grades K-5. Presenters indicated that AAA in Florida is not
currently a partner in other ongoing pedestrian efforts in the state.
•
Florida Bicycle Association (FBA) is a non-profit to inspire and support people and
communities to enjoy greater freedom and well being through bicycling. FBA made a
significant contribution to pedestrian safety in Florida with the development of a law
enforcement handbook, “Florida Pedestrian Law Enforcement Guide”, to support
pedestrian laws to be enforced. Because there is no state pedestrian organization, the
FBA handles some pedestrian issues by default. However, the extent of the FBA’s
involvement in pedestrian issues continues to be a question that is debated by the Board.
Pedestrian Advisory Task Force(s)
(See Section VII Outreach Program for more details.)
Other Partners
15
http://elderaffairs.state.fl.us/english/aaa.php
http://www.railstotrails.org/aboutus/index.html
17
http://en.wikipedia.org/wiki/American_Automobile_Association
16
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In addition to the entities listed in the above guideline, other partners can serve very important
roles in pedestrian safety and should be included wherever possible. These partners appear to be
involved, but not to a significant extent. They include, but are not limited to:
•
Adjudication. The sharing of information with judges and prosecutors is essential to
successful enforcement. Some presenters commented that there were cases of judges
dismissing tickets given to drivers for failing to yield or to pedestrians for jay-walking.
An understanding by prosecutors and judges that pedestrian enforcement can save lives
and also impact crime in those areas receiving the enforcement is important to ensure
enforcement has the impact intended.
•
Business and industry (CEOs, supervisors, safety officers, and Chambers of Commerce).
CTSTs include representation from the private sector. These representatives could be
further involved in education and outreach efforts.
•
Churches. Considering the level of difficulty encountered in reaching the immigrant
population in Florida, churches that serve those populations may be one of the few
available routes to transmit resources, education, and services.
•
Youth groups. Clubs (e.g., Boy Scouts, Girl Scouts), school groups, youth service groups
(e.g., Big Brother/Big Sister) and others can be effective channels for youth participation
in pedestrian safety activities. While there may be links to these groups at the local level,
it does not appear that there is a state or statewide strategy to reach out to these groups to
gain their support and participation.
•
Tourism. Organizations such as The Partnership for Florida’s Tourism may provide a
key link to tourists as a potential pedestrian target group. The Partnership is a grassroots
coalition designed to raise awareness of the importance of tourism and to increase public
funding of tourism marketing. The Partnership is comprised of the Florida Restaurant
and Lodging Association, Florida Attractions Association, Florida Association of RV
Parks and Campgrounds, Florida Association of Destination Marketing Organizations
and VISIT FLORIDA. 18
RECOMMENDATIONS
18
•
Establish a highly visible state focal point to serve as the identified leader and champion
for pedestrian safety.
•
Establish routine and easy-to-use communication among the key pedestrian safety
managers and coordinators within Florida Department of Transportation which could
http://www.floridastourismcounts.org/?page_id=2
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include staff meetings, Skype conferencing, teleconferencing, etc.
•
Develop and implement a plan to identify those partners specific to pedestrian safety that
are not currently involved in a coalition, council, or team and gain their participation.
•
Develop and implement a plan to identify, recruit and support those partners (e.g.,
churches) who can be most effective in reaching hard-to-reach populations such as
undocumented immigrants, low-socio-economic communities, non-English speaking
residents, winter residents, and tourists.
•
Create a strong statewide pedestrian safety coalition that brings together existing
and newly-developed partners to assist in the implementation of the state strategic
pedestrian safety plan.
•
Garner the official support and public endorsement (e.g. resolutions) of all partners,
particularly those representing the major enforcement agencies including the
Florida Sheriffs Association and the Florida Police Chiefs Association for the
statewide strategic pedestrian safety plan.
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III. Legislation, Regulation, and Policy
Each State should enact and enforce traffic laws and regulations, including laws that contribute
to the safety of pedestrians. States should develop and enforce appropriate sanctions that compel
compliance with laws and regulations. Specific policies should be developed to encourage
coordination with appropriate public and private agencies in the development of regulations and
laws to promote pedestrian safety.
Status and Recommendations
Florida’s existing pedestrian safety-related statutes are close variations of the statutes in the
Uniform Vehicle Code (UVC). Law enforcement is generally familiar with pedestrian safety
statutes.
The most important pedestrian statutes are:
DRIVER DUTY TO EXERCISE CARE TO AVOID PEDESTRIAN [§316.130(15)]
Notwithstanding other provisions, every driver of a vehicle shall exercise due care to avoid
colliding with any pedestrian or any person propelling a human-powered vehicle.
CROSSING A ROADWAY MIDBLOCK, NOT IN A CROSSWALK
A pedestrian crossing a roadway at any point other than a (marked or unmarked) intersection
crosswalk or a marked mid-block crosswalk shall yield to all vehicles on the roadway
[§316.130(10)].
A pedestrian crossing a roadway at a point where a pedestrian tunnel or overhead pedestrian
crossing has been provided shall yield the right-of-way to all vehicles upon the roadway
[§316.130(7)].
A pedestrian may not cross between adjacent signalized intersections [§316.130(11)].
CROSSING A ROADWAY IN AN UNSIGNALIZED CROSSWALK (marked or unmarked
crosswalk at intersection, or crosswalk marked mid-block)
The driver of a vehicle at any crosswalk where signage so indicates shall stop and remain
stopped to allow a pedestrian to cross a roadway when the pedestrian is in the crosswalk or steps
into the crosswalk and is upon the half of the roadway upon which the vehicle is traveling or
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when the pedestrian is approaching so closely from the opposite half of the roadway as to be in
danger [§316.130(7)].
Where a traffic signal is not in place or in operation and no sign indicates otherwise, the driver of
a vehicle shall yield, slowing down or stopping if need be to so yield, to a pedestrian crossing the
roadway within a (marked or unmarked) crosswalk when the pedestrian is upon the half of the
roadway upon which the vehicle is traveling or when the pedestrian is approaching so closely
from the opposite half of the roadway as to be in danger [§316.130(7)].
No pedestrian shall suddenly leave a curb or other place of safety and walk or run into the path
of a vehicle which is so close that it is impossible for the driver to yield [§316.130(8)].
When a vehicle is stopped at a crosswalk to permit a pedestrian to cross the roadway, the driver
of any other vehicle approaching from the rear shall not overtake and pass such stopped vehicle
[§316.130(9)].
Other Legislative Status:
• There are loopholes in the Florida Drivers License requirements that do not support highway
safety. (See Section VIII Driver Education and Licensing for more details.)
• Florida has no per se drugged driving law.
• Florida has red light running cameras but does not permit speed cameras.
• Florida has no law to explicitly prohibiting cell phone use or texting while driving. Law
enforcement officers reportedly use careless driving statutes to cite distracted drivers.
Complete Streets Policy
The State currently does not have a Complete Streets policy. There is statute that requires
pedestrians to be accommodated in all roadway projects unless there are extenuating
circumstances:
Section 335.065, Florida Statutes, Bicycle and pedestrian ways along state roads and
transportation facilities: “(1)(a) Bicycle and pedestrian ways shall be given full
consideration in the planning and development of transportation facilities, including the
incorporation of such ways into state, regional, and local transportation plans and
programs. Bicycle and pedestrian ways shall be established in conjunction with the
construction, reconstruction, or other change of any state transportation facility, and
special emphasis shall be given to projects in or within one mile of an urban area. (b)
Notwithstanding the provisions of paragraph (a), bicycle and pedestrian ways are not
required to be established: 1. Where their establishment would be contrary to public
safety; 2. When the cost would be excessively disproportionate to the need or probable
use; 3. Where other available means or factors indicate an absence of need.”
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Some MPOs have a Complete Street policy. In addition, FDOT presentations received and
reviewed indicate nine out of ten principal elements of an ideal Complete Streets policy as
established by the National Complete Streets Coalition are being addressed by FDOT. However,
some presenters indicated that too many projects lack necessary pedestrian accommodations,
especially projects in the capital work plan program.
The policy followed by FDOT in the selection of high crash locations for inclusion in the
Highway Safety Improvement Program (HSIP) puts vulnerable road users such as pedestrians, at
a disadvantage. Other states have alternative funding formulas that address this issue. Virginia
reserves 10 percent of its HSIP funds for pedestrian and bicycle projects. Virginia DOT explains
its program this way:
Bicyclist and pedestrian safety concerns often differ from motor vehicle-related concerns as nonmotorized users are the most vulnerable to injury or death from a crash. Although bicycle and
pedestrian involved crashes can cluster on a corridor or at a high risk intersection, they are
typically more dispersed and random than vehicle crashes. Further, there is little information
available on the potential crash reductions from engineering countermeasures. As such, safety
benefit-to-cost (B/C) ratio analysis and ranking procedures used for highway safety
improvements do not fully integrate factors addressing bicycle and pedestrian safety and risk.
Given the limitation of prioritizing non-motorized improvements, VDOT has developed the
Bicycle and Pedestrian Safety (BPS) program to specifically address these safety issues. 19
The current Florida uniform crash reporting form is missing options in the “Pedestrian Action”
field such as “pedestrian in crosswalk-with signal,” “pedestrian in crosswalk-against signal,” and
“pedestrian in crosswalk-no signal.” These are common choices in many other state crash forms.
Presenters indicated that other fields on the report can help determine these variables, but this
important data should be standardized and readily available.
RECOMMENDATIONS
19
•
Revise the Highway Safety Improvement Program funding formula to weight pedestrian
fatalities and injuries more heavily than motor vehicle fatalities and injuries.
•
Add “pedestrian in crosswalk-with signal,” “pedestrian in crosswalk-against signal,” and
“pedestrian in crosswalk-no signal” data values to the Non-motorist Action Prior to Crash
field in the Florida Traffic Crash Report Form.
http://www.vdot.virginia.gov/business/resources/ted_hsip_2011/HSIP_Guidelines_FY12-13.pdf
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IV. Law Enforcement
Each State should ensure that State and community pedestrian programs include a law
enforcement component. Each State should strongly emphasize the role played by law
enforcement personnel in pedestrian safety. Essential components of that role include:
•
Developing knowledge of pedestrian crash situations, investigating crashes, and
maintaining a reporting system that documents crash activity and supports problem
identification and evaluation activities;
•
Providing communication and education support;
•
Ensuring adequate training to law enforcement personnel on effective measures to reduce
crashes among pedestrians;
•
Establishing agency policies to support pedestrian safety;
•
Enforcing pedestrian laws, and all laws that affect the safety of pedestrians, including
those aimed at aggressive drivers;
•
Coordinating with and supporting education and engineering activities; and
•
Suggesting creative strategies to promote safe pedestrian and motorist behaviors (e.g.,
citation diversion classes for violators).
Status and Recommendations
Responsibility for traffic law enforcement in Florida is shared among the Florida Highway Patrol
(FHP), County Sheriff’s Offices, and local municipal police departments. There is significant
overlap in jurisdictional authority but in general in urbanized areas the Highway Patrol
concentrates on limited access highways, with some exceptions. For example, in the Orlando
metropolitan area, FHP services urban arterial streets and expressways. Likewise, some County
Sheriff’s Offices may assist municipal police departments on emergency calls but do not
typically conduct traffic enforcement on municipal roadways. Coordination is routine on traffic
safety enforcement initiatives such as impaired driving enforcement.
To support the increased participation of LEs in pedestrian safety enforcement initiatives, the
Traffic Safety Section (TSS) has funded the delivery of trainings for officers in multiple
locations in the State in Federal Fiscal Years (FFY) 2009, 2011, and 2012.
In FFY 2012, the TSS plans to fund overtime enforcement activities in multiple communities,
including Miami-Dade, Hillsborough County, Volusia County, Key West, and Palm Springs.
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These grant projects often include educational outreach in the community in the form of
presentations support collateral to school aged children, senior citizens, or other at-risk
population groups.
The law enforcement agencies in the Tampa Bay area are among the most active in education
and enforcement-related activities. According to the briefing presentation, the Hillsborough
County Sheriff’s Office (HCSO) conducted 70 enforcement details in a 16 month period during
which 3,900 warnings and 3,000 citations were issued to pedestrians and drivers. A department
crash analyst created a list of “hot spots” based on crash data to target the enforcement activities.
These efforts were combined with media outreach, publicity, and education supporting the
enforcement efforts. This project could serve as a model for other communities with high
pedestrian crashes.
The combination of high visibility enforcement with intensive outreach and publicity efforts is a
model that has proven successful in seat belt enforcement and impaired driving prevention. A
model program of pedestrian safety enforcement should use all available outreach channels, from
variable message boards near the enforcement sites to media alerts to regional broadcast and
print media to electronic media sites.
Six Law Enforcement Liaisons (LEL) and one coordinator are funded by the TSS. LELs are a
unique resource for promoting effective pedestrian safety enforcement. LELs champion
enforcement related initiatives in regions across the state, such as impaired driving prevention
and seat belt enforcement. However, to date they have not promoted pedestrian safety
enforcement initiatives on a statewide basis.
The ability of the TSS to fund overtime pedestrian safety law enforcement is limited. In order to
achieve the level of enforcement required to significantly impact the pedestrian crash problem,
those efforts will need to be combined with enforcement that is conducted as part of routine
patrols.
A particularly innovative pedestrian safety enforcement project is the Courtesy Promotes Safety
program which began in St. Petersburg in 1998 and expanded to six small to medium size
Florida cities in the FFY 2012 TSS grant program. After an initial training program, officers
employ an enforcement tactic that involves targeting uncontrolled marked crosswalks using
decoy plain clothes officers as pedestrians. Drivers who do not stop for the decoy officer in the
crosswalk are initially warned and later ticketed for the violation. Getting drivers to yield to
pedestrians at crosswalks makes the crosswalk significantly more valuable to pedestrians. While
there is a strong impulse to hand out safety flyers, warnings, or even citations to pedestrians who
cross streets unsafely or illegally, there is no evidence that this results in any lasting change in
pedestrian behavior. Pedestrians may be persuaded to go out of their way to cross at a crosswalk
if there is a safety or access benefit.
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Another Florida-based example of an effective multi-disciplinary pedestrian safety campaign
with a strong enforcement component is the Miami-Dade Pedestrian Safety Demonstration
Project conducted from 2002 to 2004. The objective of the study was to implement a
comprehensive program employing multiple enforcement, education, and engineering
countermeasures to reduce pedestrian crashes in the four specific areas. The enforcement
component targeted drivers failing to yield to pedestrians at uncontrolled crosswalks and while
turning at signalized intersections. Yielding rates increased from 3 to 18 percent to nearly 30
percent after enforcement. Overall, the program reduced countywide pedestrian crash rates by
between 8.5% and 13.3%. This translates to approximately 180 fewer crashes annually in
Miami-Dade County, or 360 pedestrian crashes reduced in 2003 and 2004 combined. 20
Many presenters in the briefing session commented on the lack of a “pedestrian culture” in
Florida. The introduction to the 2008 Florida Pedestrian Law Enforcement Guide describes the
problem:
Many of Florida's streets and roads were laid out when there was little expectation of
future pedestrian use. New streets and highways were designed to facilitate motor vehicle
travel at higher speeds and to minimize delays at controlled intersections, so that slowing
or stopping to observe the legal duty to yield to pedestrians in crosswalks became an
unaccustomed inconvenience. Such conditions shaped a road user culture in which
pedestrian use is usually sparse outside central business districts, and drivers and
pedestrians have not acquired the shared experience that informs a sense of mutual
obligations. Traffic law enforcement must be based on a recognized code of behavior.
The challenge of pedestrian traffic enforcement is to promote greater appreciation and
observance of practices conducive to pedestrian safety and mutual courtesy.
A strategy such as the Courtesy Promotes Safety project is an effective program for fostering a
culture of motorists lawfully yielding to pedestrians in crosswalks.
RECOMMENDATIONS
20
•
Conduct high visibility pedestrian safety enforcement campaigns in areas of the
state where pedestrian crashes and fatalities are overrepresented. Use proven
countermeasures such as the Courtesy Promotes Safety program and the MiamiDade Pedestrian Safety Demonstration Study.
•
Deploy and promote the roll call training video and related web-based training course
throughout the state.
•
Develop and implement guidance and promotion strategies for publicizing enforcement
http://katana.hsrc.unc.edu/cms/downloads/810964.pdf
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campaigns.
•
Designate a lead LEL as the point person for promoting pedestrian enforcement
initiatives.
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V. Highway and Traffic Engineering
Highway and traffic engineering is a critical element of any motor vehicle crash reduction
program, but is especially important for the safe movement of pedestrians. States should utilize
national guidelines for constructing safe pedestrian facilities in all new transportation projects,
and are required to follow all Federal regulations on accessibility.
Each State should ensure that State and community pedestrian programs include a highway and
traffic engineering component that is coordinated with enforcement and educational efforts. This
engineering component should improve the safety of pedestrians through the design,
construction, operation, and maintenance of engineering measures such as:
Pedestrian signals, signs, and markings;
•
•
•
•
•
•
Parking regulations;
Traffic-calming or other approaches for slowing traffic and improving safety;
On-road facilities (e.g., signed routes, marked lanes, wide curb lanes, paved shoulders);
Sidewalk design;
Pedestrian facilities such as sidewalks, crosswalks, curb ramps, and paths; and
Accommodations for people with disabilities.
Status and Recommendations
AGENCY CONFORMANCE WITH GUIDELINE
Using national guidelines
Florida uses the current (2009) national Manual on Uniform Traffic Control Devices (MUTCD).
Some states create a state-specific MUTCD by adapting the national MUTCD; Florida does not.
The national MUTCD is supplemented by numbered FHWA Interim Approval (“IA”)
Memoranda covering traffic control devices that are deemed usable immediately without further
experimentation, but which were approved too late to be included in the rulemaking for the
current national MUTCD. IA-11, Interim Approval for Optional Use of Rectangular Rapid
Flashing Beacons (RRFBs), was based on research conducted in St. Petersburg on yellow LED
stutter-flash assemblies for enhancement of crosswalk warning signage. RRFBs have been
installed at some crosswalks in other locations around the state.
FDOT policy and design manuals include the Plans Preparation Manual (PPM), Traffic
Engineering Manual (TEM, July 2011), Design Standard (2010), Highway Sign Library,
Intersection Design Guide (2007), and Manual Of Uniform Minimum Standards For Design,
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Construction And Maintenance For Streets And Highways (“Florida Greenbook / FGB”). TEM
Section 4.1 covers markings for Crosswalks in Heavy Pedestrian Concentration Areas. FGB
Chapter 8 covers Pedestrian Facilities.
FDOT manuals such as FGB Chapter 8 reference the American Association of State Highway
Transportation Officials (AASHTO) Guide for the Planning, Design, and Operation of
Pedestrian Facilities, 1st Edition. A second edition is expected to be released in 2012.
Following Federal regulations on accessibility
FDOT has a full-time Americans With Disabilities Act (ADA) Coordinator, who participated in
the development of the FHWA ADA training course, “Designing Pedestrian Facilities for
Accessibility”. According to the FDOT website,
http://www.dot.state.fl.us/projectmanagementoffice/ADA/
“The goal of the FDOT ADA/Accessibility Program is to be the most accessible state highway
system in the country. FDOT's ADA/Accessibility Program is managed by the statewide ADA
Coordinator in the Central Office in Tallahassee. The Program is implemented by project
managers throughout the 7 FDOT districts and the Florida Turnpike Enterprise. Each district has
one or more District ADA Coordinator(s) to oversee accessibility issues at the district level.
The FDOT endeavors to comply with the ADA through implementation of accessibility technical
requirements described in the "Standards for Accessible Design" (issued as the "ADA
Standards") enforced by the U.S. Department of Justice and the U.S. Department of
Transportation. FDOT has adopted many of the features described in the federal accessibility
standards in the Department's Design Standards. As the federal guidance and standards are
updated, the Department will adopt these latest regulations as state standards for use on the State
Highway System and other facilities.”
Florida has an ADA/504 Transition Plan (current revision 9/15/2011) for compliance with the
ADA and Section 504 of the Rehabilitation Act of 1973, which requires entities that receive
federal financial assistance to ensure that they do not discriminate against persons with
disabilities when providing their services, programs and activities. The Transition Plan states
that on October 1st of each year FDOT submits an ADA/504 Program Plan to FHWA describing
accomplishments of its ADA/504 program for the past year and the proposed goals and
objectives for the upcoming year. FDOT has developed four courses covering ADA
requirements, all of which are fully or partially relevant to roadway and bridge design.
Ensuring that State and community pedestrian and bicycle programs include a highway
and traffic engineering component that is coordinated with enforcement and educational
efforts
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According to FDOT’s Roadway Design Office, “The Design office works to develop standards
for the design and operation of Florida’s roadways that are consistent with traffic law and
support enforcement activities. An example is the establishment of reduced speeds in school
zones. When a citizen contested a citation and a weakness in our standard for marking school
zones was identified regarding the use of post mounted signs on multi-lane highways, we
updated the standards for school zone markings in coordination with FDOT’s Safe Routes to
School and School Crossing Guard Program managers to improve the consistency of school zone
signing and markings statewide.”
In testimony other FDOT staff related cases where enforcement partners on a Community Traffic
Safety Team (CTST) were requested to conduct focused enforcement after installation of
engineering measures.
Florida’s CTSTs are the key local and regional bodies that facilitate coordination between
engineering, enforcement and education efforts. According to FDOT’s CTST webpage, “FDOT
has been active in the support of Community Traffic Safety Teams. Each FDOT District has a
CTST Coordinator who works closely with the CTSTs in their geographic area, and the Central
FDOT Safety Office acts as a liaison to the District Coordinators. Due to the common goals,
objectives, and interests of the statewide Community Traffic Safety Teams, the teams decided to
form their own unique Coalition. The CTST Coalition holds quarterly meetings to share
successes, safety materials, and programs and to facilitate technology transfer among the CTSTs.”
Pedestrian, bicycle, and school bus loading zone signals, signs and markings
Pedestrian traffic control devices are covered throughout the MUTCD. School related traffic
control devices are covered in MUTCD Part 7. Florida specific details appear in the FDOT
Traffic Engineering Manual. In the Briefing Book, FDOT indicated that: “The Traffic
Engineering Manual and MUTCD are followed as a general practice” and that “Bicycle and
Pedestrian countermeasures are utilized routinely.”
The assessment team noted a particular pedestrian related issue with signals. At many signals on
state highways the pedestrian indication begins a minimum length walk phase and clearance
interval immediately upon a fresh green. However, the green phase extends significantly beyond
the end of the pedestrian clearance interval. This significantly inconveniences pedestrians who
arrive in the middle of the green interval and according to the Transportation Research Board
(TRB) Highway Capacity Manual (HCM) is likely to increase pedestrian noncompliance.
Parking regulations
In the Briefing Book, FDOT indicated that: “Parking regulations are local agency specific except
that FDOT will respond (after technical review) to local requests for posting signs […that…]
must be enforced by local government.”
Traffic-calming or other approaches for slowing traffic and improving safety
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In the Briefing Book, FDOT indicated that: “Many traffic-calming treatments are inappropriate
for State Road use. Where feasible, the Districts are open to reviewing approaches for slowing
traffic on a local level”.
Although traffic calming for speed control is commonly deemed impractical on multi-lane roads,
if calming is defined more broadly to include features that minimize conflicts, including vehiclepedestrian conflicts, several roadway design options and configuration transformations qualify as
“calming” with respect to pedestrian safety and have significant safety benefits for pedestrians
and other road users. These are Access Management, Lane Reductions, and Roundabouts. All
have been implemented by FDOT on various roadways.
FHWA's Office of Safety recently updated its Guidance Memorandum on Promoting the
Implementation of Proven Safety Countermeasures. The 2012 edition lists nine
countermeasures, three of which are noted above:
•
•
•
•
Corridor Access Management
Road Diets (Roadway Reconfiguration)
Roundabouts
Medians and Pedestrian Crossing Islands in Urban and Suburban Areas
Access management uses median islands to restrict left turn movements into and/or out of
driveways. A median island may make a road safer for pedestrians to cross by enabling them to
wait halfway across. So-called “4-to-3” and “6-to-5” conversions reduce the number of through
lanes by one in each direction, create a center turn lane (with opportunities for pedestrian
refuges), and typically add bike lanes. 4-to-3 conversions are particularly beneficial for
pedestrian safety. 6-to-5 conversions also have significant benefits and may enable
consideration of mid-block crosswalks. FDOT staff stated that their practice is to not establish
uncontrolled crosswalks on roads with three or more lanes in a given direction.
Roundabout intersections, as defined in FHWA’s Roundabouts: An Informational Guide, calm
traffic by limiting the speed of entering, circulating and exiting vehicles. By reducing the
number and severity of conflicts, roundabouts greatly improve pedestrian safety compared to
traffic signals, and can enable lane reductions and the addition of center turn lanes between
intersections that if equipped with median refuges can improve pedestrian safety and
connectivity.
On-road facilities (e.g., signed routes, marked lanes, wide curb lanes, paved shoulders
In the Briefing Book FDOT indicated that, “[these] options are considered in project
development. Where suitable, they are included in design.”
“Signed routes” refers to signed bicycle routes, typically featuring outside lanes of 14 feet or
greater that enable passing of bicyclists within the lane. These are not suitable for pedestrian use
because walking and wheelchair use in travel lanes is not safe.
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“Marked lanes” refers to bike lanes. Curbside bike lanes benefit pedestrians by buffering
sidewalks, and by providing a place for pedestrian travel where sidewalks do not exist. Paved
shoulders serve a similar function; their use by bicyclists is optional. Florida Greenbook,
Chapter 8 says “Most highway shoulders are not pedestrian facilities because they are not
intended for use by pedestrians, although they can accommodate occasional pedestrian usage.”
Sidewalk design;
Pedestrian facilities such as sidewalks, crosswalks, curb ramps, and paths;
Off-road bicycle facilities (trails and paths);
FDOT constructs sidewalks on state roads in urban areas, and encourages and supports their
construction through Local Agency projects. FDOT’s Manual Of Uniform Minimum Standards
For Design, Construction And Maintenance For Streets And Highways (“FDOT Florida
Greenbook”), May 2011 draft, says that sidewalks should be constructed in conjunction with
new construction and major reconstruction in an urban area [….and generally…] on both sides of
the roadway. Exceptions may be made where physical barriers (e.g., a canal paralleling one side
of the roadway) would substantially reduce the expectation of pedestrian use of one side of the
roadway. FDOT’s minimum sidewalk width for use on state highways is 5 feet when separated
from the back of curb by a buffer strip, and the PPM requires a 2 foot minimum separation for a
5 foot sidewalk. The 5 foot width of a separated sidewalk may be reduced to 4 feet when
physical constraints exist. The minimum width is 6 feet when the sidewalk is adjacent to the curb.
FDOT’s PPM says that marked crosswalks shall be provided at all side streets where a pedestrian
facility meets the roadway, and requires that marked crosswalks at uncontrolled locations be
coordinated with the District Traffic Operations Office and meet Traffic Engineering Manual
guidelines. On uncontrolled legs they must be supplemented with other treatments where posted
speeds exceed 40 mph, on a roadway with 4 or more lanes and ADT 12,000 or greater without a
raised median or traffic island, and on a roadway with raised medians or traffic islands that has
or is projected to have (within 5 years) an ADT of 15,000 or greater.
FDOT constructs midblock crosswalks where needed and judged to be appropriate and
sufficiently safe. The PPM states that midblock crosswalks shall not be provided where sight
distance is inadequate, and where ADA cross slope and grade criteria cannot be met. They
should not be located between intersections spaced closer than 660 feet, or where the distance to
the nearest intersection or crossing location is less than 300 feet. An engineering study is
required before a marked crosswalk is installed at an uncontrolled location.
In the briefing, FDOT Design staff said that 20 percent of pedestrian-involved crashes are in
parking lots, and that forward as well as backing movements were involved in these crashes.
This Assessment does not address off-road facilities (trails and paths).
Accommodations for people with disabilities
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In the briefing FDOT stated that accommodations are integral to all designs and projects. See
“Following Federal regulations on accessibility” above.
Additional Issues
In the briefing FDOT staff identified a need for more training, specifically addressing best
practice countermeasures and when to employ them.
FDOT staff also indentified lack of channels for engaging engineering students in pedestrian
facility design and safety.
The roles and responsibilities of FDOT staff at various levels and across disciplines to implement
and support pedestrian safety improvements are not clear.
The practice of locating schools near the edge of developed areas leads to increased driving of
children to school and creates hazards by forcing students to cross wide high volume roads to
walk to school. Traffic engineering cannot effectively remedy siting of schools that negatively
impacts safe pedestrian access. Dialog between FDOT and education agencies may be
productive in this regard.
In the briefing, staff said that there was some uncertainty as to whether current Florida traffic
law, including recent amendments, is sufficiently clear as to the responsibility of motorists to
stop or yield to pedestrians at crosswalks and at other locations, and regarding what signs must
be posted at crosswalks. Florida’s traffic law is based on the Uniform Vehicle Code (UVC). A
task force has been created at the National Committee on Uniform Traffic Control Devices
(NCUTCD) to update the UVC.
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RECOMMENDATIONS
Roadway and Intersection Configuration
•
In urban and suburban areas where pedestrian crossing demand exists on multilane streets without center turn lanes, prioritize evaluation of those streets for lane
reduction conversions to create center turn lanes with median islands.
•
Prioritize the use of roundabouts to replace multi-lane all-way stops and medium-volume
traffic signals, to improve pedestrian safety at the intersection and to create opportunities
for lane reduction and median refuge installation between intersections.
•
Identify opportunities to add center turn lanes and medians (or pedestrian refuge islands)
to roadways when they are resurfaced or reconstructed.
•
Increase the minimum median island width at intersections to six feet, to provide a
sufficiently wide waiting area for slow pedestrians who need to wait halfway across an
intersection.
•
Modify signal timing by providing the maximum length walk phase.
•
Work with legislative partners to restore Florida Department of Transportation authority
to limit the number of lanes on state highways.
•
Create and distribute a best practice guide to parking lot design that addresses pedestrian
safety, protected walking areas and direct connections between street sidewalks and
building entrances.
•
Evaluate the use of Rectangular Rapid Flashing Beacons on advance warning signs on
higher-speed and wider multi-lane approaches.
Engineering-Related Communication, Training, and Technology Transfer
•
Create and post short videos and webcasts that explain how innovative treatments solve
problems on state highways and state/local intersections. Publicize them throughout
Florida Department of Transportation, MPOs, and CTSTs to foster awareness and
understanding of successful treatments and solutions.
•
Provide Florida Department of Transportation Design staff with training on best practice
countermeasures and when to employ them.
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•
Work with university student chapters of ITE and ASCE to interest and train engineering
students in pedestrian design and safety.
•
Create and implement a policy that defines the roles and responsibilities of Florida
Department of Transportation staff at various levels and across disciplines to implement
and support pedestrian safety improvements. One example of such a departmental policy
is California Department of Transportation (Caltrans) Deputy Directive 64 Revision 1,
“Complete Streets – Integrating the Transportation System”.
Engineering Interaction with Other Disciplines
•
Create a dialog between Florida Department of Transportation and the Florida
Departments of Education and Health in a discussion of school siting and the creation of
a state best-practice guide for school siting. Objectives should include (a) locating
schools within age-appropriate distances suitable for students to walk and bicycle from
home, (b) minimizing or eliminating the need for students on foot and bicycle to cross
major streets to reach the school, and (c) design of the immediate school vicinity to
minimize conflicts between motor vehicles and students walking and bicycling to/from
the school.
•
Track and provide input to the current Uniform Vehicle Code (UVC) update task force
effort at National Committee on Uniform Traffic Control Devices to advocate for UVC
changes that clarify the responsibility of motorists to stop or yield to pedestrians at
crosswalks and at other locations.
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VI. Communication Program
Each State should ensure that State and community pedestrian programs contain a
comprehensive communication component to support program and policy efforts. This
component should address coordination with traffic engineering and law enforcement efforts,
school-based education programs, communication and awareness campaigns, and other focused
educational programs such as those for seniors and other identified high-risk populations. The
State should enlist the support of a variety of media, including mass media, to improve public
awareness of pedestrian crash problems and programs directed at preventing them.
Communication programs and materials should be culturally relevant and multilingual as
appropriate, and should address issues such as:
•
•
•
•
•
•
•
•
•
•
Visibility, or conspicuity, in the traffic system;
Correct use of facilities and accommodations;
Law enforcement initiatives;
Proper street-crossing behavior;
Safe practices near school buses, including loading and unloading practices;
The nature and extent of traffic-related pedestrian fatalities and injuries;
Driver training regarding pedestrian safety;
Rules of the road;
Sharing the road safely among motorists and pedestrians; and
The dangers that aggressive driving, including speeding, pose for pedestrians
Status and Recommendations
The Florida Department of Transportation (FDOT) currently lacks a statewide strategic
communications plan to address pedestrian safety. The Assessment Briefing Book notes the
Traffic Safety Section (TSS) desires to develop an effective communications program, but its
current efforts are limited to a few public service announcements (PSAs). FDOT has a Public
Information officer (PIO) at the state level who directs/coordinates with District level PI&O
staff. There is evidence that FDOT and DHSMV collaborate on statewide public information
campaigns, but they have yet to do so for pedestrian safety. There are statewide campaigns on
motorcycle safety, DUI, seat belts, and other FDOT TSS focus areas. Links to many of these
campaigns appear on the front page of the FDOT SSO webpage. FDOT utilizes a full time
employee to maintain its social media presence. This staff member has completed social media
trainings for FDOT employees.
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The FDOT Public Information Office indicated that in lieu of statewide pedestrian safety
campaigns, it provides support for District level. However, apart from PSAs created with TSS
grant funding it is unclear what specific support or coordination the Public Information Office
provides. Two model pedestrian safety programs integrate engineering, enforcement, and
education: District 7’s See the Blind Spots and District 6’s Safe Steps – Pasos Seguros,
administered by the Alliance for Aging, Inc. Miami-Dade. The See the Blind Spots program is an
attention-getting media campaign supported by well-coordinated law enforcement. The Safe
Steps – Pasos Seguros leverages media partnerships (CBS4, and Spanish language Channel 41),
employs culturally sensitive programming (most employees are bilingual, and printed materials
are trilingual), and partners with the local MPO to identify dangerous intersections for
infrastructure improvements. Both programs were initiated at the local level in response to
identified pedestrian crash problems.
Community Traffic Safety Teams (CTST), and others groups and individuals can draw upon the
Florida Pedestrian/Bicycle Resource Center for education and outreach materials. In 2011, the
website received approximately 1,300 unique visits. The relatively low number of site visits
seems to indicate the Resource Center is not connecting with its target audience.
Briefing participants indicated that other state agencies are engaged in public information &
outreach efforts on issues that are either directly or peripherally related to pedestrian and
bicyclist safety, such as with distracted driving and aggressive driving campaigns. The pedestrian
safety message is also communicated and promoted through a variety of state level coalitions and
organizations, and local entities such as the CTSTs.
Visibility, or conspicuity, in the traffic system
Correct use of facilitates and accommodations
Proper street crossing behavior
The Florida Pedestrian and Bicycle Resource Center maintains an extensive catalog of outreach
and communication materials on safe and correct behavior for pedestrians and bicyclists. At the
FDOT district level there several programs that exist to address safe pedestrian behavior. For
example:
- WalkWise Tampa Bay (District 7) provides annually over 400 public presentations on
pedestrian safety including visibility and conspicuity in the traffic system, as well as the correct
use of facilities and accommodations. The presentation has been well-received locally.
- The 2012 Florida Drivers Manual includes some information on safe walking and bicycling
behavior.
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- The Safe Steps – Pasos Seguros program, administered by the Alliance for Aging, Inc. MiamiDade, conducts targeted outreach to senior centers regarding visibility in the traffic system,
proper use of the facilities, and proper street crossing behavior.
Other materials and communications efforts have been developed or undertaken by local
partners, community organizations, CTSTs and others. However, there is no central aggregator
of such materials or efforts.
Law enforcement initiatives
The Highway Patrol noted its officers frequently talk to middle school and high school students
about traffic safety. They do not have a curriculum that specifically addresses bicycle and
pedestrian safety, but indicated an interest in developing one.
Some law enforcement agencies receive TSS grants for pedestrian safety. These grants are
primarily used to fund traffic enforcement, and to support education and outreach activities.
The Florida Public Safety Institute is developing a roll call video, and a web-based training
curriculum on pedestrian safety law enforcement.
There are efforts underway in other FDOT districts and counties. It is unclear about how these
initiatives are shared with others.
Safe practices near school buses: loading/unloading
The Florida Department of Education educates parents regarding the safe transportation of
pupils. Often it chooses to focus on safe school bus loading and unloading practices. Safe
pedestrian and driving practices near school buses are also addressed in the 2012 Florida Drivers
Manual using color graphics to address a variety of roadway scenarios under which a driver
could encounter a loading or unloading school bus. Additionally, safe practices near school
buses are addressed on a dedicated website http://www.floridaschoolbussafety.gov/Toolkit.htm
Nature and extent of traffic-related pedestrian fatalities and injuries
Much data exists regarding the nature and extent of traffic-related pedestrian fatalities and
injuries. Reports on crashes, citations, and vulnerable road users are available from the Florida
Department of Highway Safety and Motor Vehicles (DHSMV). (See
http://www.flhsmv.gov/html/safety.html). The data and resultant reports were not easily located.
The Florida Department of Health Office of Injury Prevention keeps injury data by cause,
county, and age. The office also provides a direct link to the 2011 Dangerous by Design Report
on its homepage.
Driver training regarding pedestrian safety
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Please refer to Section VIII Driver Education and Licensing.
Rules of the road;
Sharing the road safely among motorists and pedestrians; and
The dangers that aggressive driving, including speeding, pose for pedestrians
The See the Blind Spots campaign initiated by FDOT District 7 is a public information campaign
that utilizes PSAs, YouTube clips, posters, and a dedicated website to communicate the rules of
the road to pedestrians, and the dangers that aggressive driving poses to pedestrians. See
http://www.seetheblindspots.com/
The campaign is one of the few examples that presents a compelling case for behavior change
among pedestrians, bicyclists, and drivers. Its campaign images are memorable. The
development of the messages included peer review but did not include a formal focus group
testing. See the Blind Spots remains a notable campaign, and an example of what can be
accomplished when enforcement, engineering, and education are integrated to address pedestrian
safety.
Recommendations
•
Develop a statewide strategic communications plan that will support the pedestrian
safety directives of the new Strategic Highway Safety Plan and the Statewide
Strategic Pedestrian Safety Plan. The plan should:
o utilize the Florida Department of Transportation Public Information Office,
and similar offices from partners in the Strategic Highway Safety Plan such
as the Florida Highway Patrol, Office of Injury Prevention, and nongovernment organizations such as AAA, and AARP to communicate
pedestrian safety messages.
o develop collateral materials that are consistent in appearance to PSAs, social
media, printed materials, etc.
o develop new materials with the assistance of knowledgeable state and local
partners.
o target program campaign materials and messages toward specific audiences
(e.g. motorists and pedestrians) and focus group test those messages and
materials on those audiences.
•
Develop an appropriate state level public information response to Florida’s pedestrian
safety problem that will help build public support for the efforts underway at the state and
local levels. Sharing data regarding injuries, deaths, causes, and locations will help
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inform the public, the media, elected officials and others about the state of pedestrian
safety in Florida.
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VII. Outreach Program
Each State should encourage extensive community involvement in pedestrian safety education
by involving individuals and organizations outside the traditional highway safety community.
Outreach efforts should include a focus on reaching vulnerable road users, such as older
pedestrians, young children, and new immigrant populations. States should also incorporate
pedestrian safety education and skills training into school physical education/health curricula. To
encourage community and school involvement, States should:
•
•
•
•
•
•
•
Establish and convene a pedestrian advisory task force or coalition to organize and
generate broad-based support for pedestrian programs;
Create an effective communications network among coalition members to keep members
informed and to coordinate efforts;
Integrate culturally relevant pedestrian safety programs into local traffic safety injury
prevention initiatives and local transportation plans;
Provide culturally relevant materials and resources to promote pedestrian safety
education programs;
Ensure that highway safety in general, and pedestrian safety, in particular, are included in
the State-approved K-12 health and safety education curricula and textbooks, and in
material for preschool age children and their caregivers;
Encourage the promotion of safe pedestrian practices (including practices near school
buses) through classroom and extracurricular activities; and
Establish and enforce written policies requiring safe pedestrian practices to and from
school.
Status and Recommendations
Pedestrian advisory task force or coalition(s)
At the state level, there are several organizations and coalitions that bring together a diverse and
multi disciplinary membership in support of improved pedestrian mobility and safety. These
include:
•
State Strategic Highway Safety Plan (SHSP) Executive Committee. Pedestrian safety is
included in the SHSP emphasis area “Vulnerable Road Users.” The SHSP Leadership
Group meets on a regular, usually quarterly, basis to address priority issues. It is
currently in the process of updating the SHSP.
•
Bicycle and Pedestrian Partnership Council. From an initiative of the Secretary of
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Transportation, this Council was formed in 2010 and charged with forming policy
recommendations to the Florida Department of Transportation (FDOT) and its partners
on the state’s walking, bicycling and trail policies, programs, and facilities. 21 With about
20 members, the Council is staffed by FDOT’s Office of Policy Planning.
•
Pedestrian Safety Action Plan (PSAP) Group. Development of a state plan, begun in
May 2011, was being coordinated by FDOT. 22 Plan development has been suspended
until the completion of this assessment at which time development of a strategic plan for
pedestrian safety is expected to occur.
•
Community Traffic Safety Team (CTST) Coalition. The CTST Coalition was begun in
1995; this coalition coordinates the work of all CTSTs in the state with over 800
volunteer members. Pedestrian safety is one among many safety issues addressed by the
teams and their Coalition.
•
Safe Mobility for Life Coalition. With over 25 members, this coalition was established
by FDOT to improve the safety, access and mobility of Florida’s aging road users by
developing a comprehensive strategic plan to reduce injuries and crashes among this
vulnerable population. One of the ten emphasis areas for the Florida's Aging Road User
Strategic Safety Plan is to promote the safe mobility of aging vulnerable road users
(pedestrians, transit riders, bicyclists, and other non-motorized vehicles). 23
In addition to the above, the State also has an active Traffic Records Coordinating Committee
composed of several entities that have responsibility for collecting, analyzing, and distributing
data. The Florida Injury Prevention Advisory Council (FIPAC), a component of the Florida
Department of Health, provides input for the development and implementation of the Florida
Injury Prevention Strategic Plan.
Each of these organizations has their own advantages and limitations. For pedestrians, their most
significant limitation is a lack of a comprehensive and single focus on pedestrian safety.
On the local level, there are at least two kinds of coalitions that are significant to pedestrian
safety:
•
Bicycle and Pedestrian Advisory Committee - Metropolitan and Transportation Planning
Organizations (MPOs and TPOs). Each MPO and TPO has a bicycle and pedestrian
advisory committee. For project planning purposes, this advisory group reviews potential
projects for incorporation into the local infrastructure or public transit project plan. There
are 26 MPOs and TPOs in the State.
21
http://www.dot.state.fl.us/planning/policy/bikeped/annualrpt2011.pdf
http://www.tindaleoliver.com/PSAP/index.html
23
http://www.safeandmobileseniors.org/FloridaCoalition.htm
22
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•
Community Traffic Safety Teams (CTSTs). (See Section II Multidisciplinary
Involvement.)
Both types of coalitions work to enhance safety in their areas. In many instances, individuals
such as FDOT planners and coordinators participate on both groups.
Effective communications network
Policies, guidelines and program development originate primarily at the state level in Florida.
Implementation and operations of programs, particularly those which are the responsibility of
FDOT, are highly decentralized through FDOTs seven regional districts. This system creates an
important degree of flexibility, which is particularly needed for pedestrian programs and
infrastructure improvements which must be tailored to specific locales; however, it also may
create programmatic inconsistency that can be problematic. This system is conducive to
communication which tends to flow up and down the organizational chains of command and
among members of coalitions or task forces who have the ability to routinely meet with minimal
travel. It is less conducive and may be a hindrance to horizontal communication across
organizational and regional boundaries.
When asked, a number of presenters during assessment interviews commented on having had
opportunities in the past to meet with their counterparts across the state to share information,
ideas, and ways of doing things, but these opportunities are no longer available. Travel
limitations and budget cuts have reduced or eliminated many quarterly or annual meetings. For
example, there is no central coordination of and fewer opportunities for face to face meetings or
routine communication among the seven FDOT district CTST coordinators that would allow
them to easily share best practices in their jurisdictions.
On the other hand, Safe Routes to Schools provides a model for cross-cutting communication
and information dissemination. In late 2008, the state SRTS Coordinator began e-mailing
regular SRTS Updates, electronic newsletters containing information and web links related to
state, national, and international SRTS news and training opportunities. These SRTS updates are
sent at least once a month to statewide contacts, including the seven Districts, who in turn send
them to their local distribution lists. At the District level, the SRTS contacts disseminate
information on SRTS through meetings, e-mail and other communications, to make sure that
potential applicants and sponsors know about the SRTS program and application opportunities
and processes. 24
24
http://www.saferoutespartnership.org/state/network/florida#Success%20Story
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Culturally-relevant pedestrian safety programs and materials
Florida has a relatively high proportion of seniors and Hispanic/Latino citizens. The need for
Spanish and other non-English-language materials is high. There are a number of examples of
programs to meet this need. These programs include, but are not limited to:
•
The Alliance for Aging, Inc. in Miami-Dade County is developing a bilingual Safe Steps
– Pasos Seguros program targeting the age 65+ pedestrians population in Miami. This is
an outreach and education program that includes a television public awareness campaign
and an evidence-based curriculum for adult pedestrian safety. Safe Steps – Pasos
Seguros also incorporates a multi-disciplinary approach through the involvement of the
media (CBS and FX), Florida International University’s Lehman Center for
Transportation Research, Miami-Dade County Public Works, the MPO, FDOT, Florida
Department of Health and Elder Affairs, 42 local service providers, and an Elder
Pedestrian Advisory Group. 25
•
Miami-Dade County has translated the Safe Routes to Schools Parents’ survey into
Haitian- Creole. This has been posted to the National Center for SRTS’s website for use
by others.
•
Florida has implemented a minority task force and a Safe Mobility for Life Coalition that
addresses pedestrian issues for these demographics. Materials have been produced in
English that are being reviewed for translation into Spanish and Creole-Haitian.
Through the Safe Mobility for Life Coalition, an aging road user development center is
being created.
•
The Florida Pedestrian and Bicycle Safety Resource Center provides some of its
materials in Spanish. However, most of its publications do not appear to be available in
a language other than English. The Center promotes safe pedestrian and bicycling
activities for citizens and visitors by providing educational materials and information to
advocate groups in the state. 26 The Center could be a primary source of multi-cultural
information and materials. However, according to its website, it is currently unable to
ship materials.
•
Several presenters indicated that some staff members are bilingual, including law
enforcement community outreach officers, in order to better communicate with the
community.
During presentations, several comments were provided regarding a driving “culture” particular to
Florida. This culture was described as a sense of ownership of the road by motorists in
conjunction with a belief that neither bicycles nor pedestrians should be using the roadway. This
25
26
http://www.healthymiamidade.org/system/js/back/ckfinder/userfiles/files/FLYER%20Safe%20Steps-PS.pdf
http://www.pedbikesrc.ce.ufl.edu/home/about
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sense of ownership is reflected in many motorists failing to yield the right-of-way to a pedestrian
despite law to the contrary.
Resources for pedestrians, in general, seem to be rather limited; and programs and materials to
address Florida’s driving “culture” and for specific subcultures and populations of pedestrians
appear to be nonexistent or extremely limited across the state as a whole. As yet, no statewide
campaign has been developed to address the state’s pedestrian safety issues.
Preschool and K-12 health and safety education
The Florida Traffic and Bicycle Safety Education Program recently released a revised K-5
curriculum: Florida's Safe Routes to School - Elementary Traffic Safety Education Guide. This
guide includes four sections: I – Administrator’s guide, II – Safe Routes to School, III – Student
activities, and IV – Resources. Student activities include pedestrian and school bus safety
student activity lessons for grades K-2. Bicycle safety lessons provide activities for grades 3-5.
The curriculum and videos may be purchased for an in-state cost of $20 (out-of-state for $25). 27
For grades 6-8, there is a middle school bicycle curriculum called Pre-Driver’s Ed – Thinking
Ahead! Thinking Ahead does not appear to incorporate any pedestrian safety principles or
activities. 28
The Next Generation Sunshine State Standards for Physical Education describe benchmarks in
the K-2 grades for pedestrian safety. In addition to the curriculum of the Florida Traffic and
Bicycle Safety Education Program, two programs were presented that, according to their
respective program managers, meet the pedestrian Sunshine State Standards. These included:
•
WalkSafe™ Miami. WalkSafe™ is an evidence-based program consisting of video and
teacher-led classroom discussion, outside street-crossing simulation, and a poster contest
or other creative activity. Teacher tools with supplemental lessons for English as Second
Language (ESL) plus English, Spanish, and Haitian-Creole materials have been built into
the curriculum.
•
WalkWise, BikeSmart. This program provides a multi-pronged approach with handout
items, presentation, advertising, and media outreach. The presentation includes the
innovative use of an electronic interactive response system that generates active
discussion around pedestrian safety questions. Materials are available in Spanish. Where
needed, interpreters are provided by host businesses for workplace presentations.
Unfortunately, just because a program addresses the Sunshine State Standards does not guarantee
its admittance into the schools. Because a school board member served as its champion,
27
28
://www.hhp.ufl.edu/safety/elementary-curriculum.shtml
http://www.hhp.ufl.edu/safety/_docs/PreDriversEd-Example_Curriculum.pdf
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WalkSafe™ Miami was able to obtain a mandate to be taught in the schools. This mandate must
be continuously renewed by the school superintendent for on-going buy-in. School districts and
individual schools have almost complete discretion as to how the state standards are met, and
resistance to a full-scale program is common.
Classroom and extracurricular activities
Safety Town is a child-sized “town” with buildings, sidewalks, and traffic control devices
designed specifically to teach children safe behaviors in a traffic environment. A Safety Town
facility might range from an in-class town of cardboard boxes to an outdoor park environment of
several acres. There are a few Safety Towns available in select cities in Florida, including:
•
•
•
Pasco Safety Town, New Port Richey. 29
Children’s Safety Village, Orlando. 30
Safety Town, Coral Springs. 31
No evaluation of these Safety Towns was found. However, an evaluation of the ChampagneUrbana, Illinois Safety Town found significant differences between the 100 students who
completed the Safety Town curriculum and the 100 student control group, with significantly
higher test scores by the students participating in Safety Town. 32
Safe pedestrian practices to and from school
Safe Routes to School. Safe Routes to School (SRTS) serves as the premier program supporting
safe transportation (walking, biking, and passenger riding) for students to and from school.
Florida currently receives $9.7 million a year designated for SRTS. Statewide coordination of
the program is managed by the FDOT’s State Safety Office (SSO). Funds are set-aside for the
salary, benefits, travel, and other support for the SRTS Coordinator. Then $100,000 is reserved
per year for contracts, educational, and promotional items as determined by the SSO. The
Central Office funds educational materials with a statewide SRTS emphasis.
The majority of SRTS funds are allocated among the seven FDOT Districts in proportion to the
number of children in grades K-8. An example of an SRTS funded project is:
•
All Children’s Hospital (ACH) is doing pedestrian education in elementary schools
29
http://www.pascosheriff.net/websmart/Pasco/static/safety%20town.htm
http://articles.orlandosentinel.com/2011-10-01/news/os-safety-town-children-20111001_1_traffic-dangers-safetytown-children-s-safety-village
31
http://www.coralsprings.org/summerfun/SummerFun2011/SpecialPrograms.pdf
32
Adesso, Nicholas A., AnEvaluation of the Champagne-Urbana Safety Town Program, Master’s Thesis, 1974.
30
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throughout Tampa Bay. ACH also created the Walking School Buses Program where
trained and trusted adults walk to and from school with groups of children. Educating
children on how to walk safely is always part of Walking School Buses.
Approximately 200 communities are involved in the 241 projects that are currently programmed.
It is estimated that the number of schools involved is about 1,000.
Written policies requiring safe pedestrian practices to and from school. The SRTS Program
supports the implementation of policies that require safe pedestrian practices to and from school.
The Safe Routes to Schools Local Policy Guide provides examples of policies that work and a
policy change model that can be used by a safety practitioner to develop and implement new
policies. As an example, under one of Florida’s SRTS projects, the Miami-Dade County school
board mandates that all students in the school system receive pedestrian education through the
WalkSafe™ program. 33
RECOMMENDATIONS
33
•
Establish a one-stop-shop approach to pedestrian safety resources that meets the needs of
the state’s pedestrian stakeholders.
•
Implement an on-going, statewide communications network that encompasses all those
with responsibilities in pedestrian safety; use current technologies and social networks
such as website, chat rooms, Facebook, Twitter and others to facilitate and expedite
communication.
•
Significantly expand the programs and materials available for identified, at-risk
populations, ensuring their cultural sensitivity, appropriateness, usability, and desirability
by using focus groups, developing material specifically for those populations (vs. English
translations), and testing for receptivity and results.
•
Develop and implement a strategic approach to garner the necessary support to
incorporate pedestrian education in the schools, at least in Grades K-5 in compliance with
the Sunshine State Standards for those grades.
•
Identify and replicate evidence-based programs, such as WalkSafe™ with particular
emphasis in high priority areas across the state.
•
Evaluate those programs that have not been identified as evidence-based to determine
their effectiveness and whether it would be appropriate to support them in other
communities.
•
Promote and distribute the Safe Routes to Schools Local Policy Guide to local school
http://www.saferoutespartnership.org/state/network/florida#Success%20Story
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•
boards, school administrators, PTAs, and others who could influence the implementation
of safety policies for transportation to and from schools; create and implement policies as
recommended by the Guide.
Develop and implement a communications strategy that supports a “share the road”
approach.
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VIII. Driver Education and Licensing
Each State should address pedestrian safety in State driver education training, materials, and
licensing programs in the classroom and behind the wheel, including strategies for motorists and
pedestrians on safely sharing the road.
Status and Recommendations
Persons under the age of 18 interested in obtaining a drivers’ license must complete a four hour
Driver Education course, which may be provided by a private company, a high school, or a home
study or web-based course. The Florida Department of Highway Safety and Motor Vehicles
(DHSMV) certifies each school and its curriculum. It is unknown whether the certification
process assesses the amount of pedestrian safety content of the course (a two hour module
known as Bike ‘N Ped Driver Ed is available to driver education schools). Upon completion of
the 4 hour course, prospective drivers must pass a 20 question exam, and an on-the-road skills
test. Each knowledge exam includes one question on pedestrians. It is unknown whether the
question is drawn from a pool of pedestrian related questions. The driving skills test is
administered by a DHSMV certified instructor. It is unknown whether instructors commonly test
their subject’s knowledge of laws pertaining to pedestrians and other vulnerable road users.
Prospective drivers over the age of 18 are only required to pass the 20 question knowledge test,
and subsequent skills test. The 4-hour driver education course is not required.
The 2012 Florida Drivers Manual was updated to include information on common conflicts
between motorists and pedestrians, and motorists and bicyclists. The manual, while providing
graphic depictions of legal driving behavior and potential conflict situations (encountering a
stopped school bus, for example), does not illustrate desired behavior for motorists around
pedestrians and bicyclists. DHSMV is considering applying for a grant for a better-written, more
illustrative, friendlier manual.
In 2010, Florida’s law enforcement community issued 4.3million traffic summons. A portion of
these drivers are eligible to enter a traffic law refresher course to have their citation expunged.
Privately operated, DHSMV certified schools provide this service. It is unknown whether the
certification process assesses the pedestrian safety content of the course.
Florida does place licensing restrictions on groups that are at a higher risk of crashing. A
graduated licensing system is employed for drivers under 18 years. Older drivers are required to
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submit to vision testing at age 80. The DHSMV appears to be adapting to the reality of a sizable
and growing percentage of its drivers being senior citizens: there is an anonymous tip line for
alerting the state to older drivers in need of testing, and law enforcement officers are empowered
to report drivers for retesting of knowledge and skills.
It was noted that the driver licensing system in the state is undergoing a major transformation.
The provision for a web-based driving exam is a potential cause for concern: passage rates are
higher with this new format than for the same exam taken at a DHSMV branch. It was postulated
that the difference in scores is due to examinants treating the web version as an open-book exam.
No evaluation is being conducted on the new testing regimen’s impact on driver performance
and knowledge retention.
A second cause for concern is the complete transfer of the driver licensing system out of the
DHSMV and into the offices of the county tax collectors. The ramifications of relocating this
function to what is an administrative agency are unclear, but potentially problematic as a public
safety interest is being served by having a high quality, professional and consistent driver
licensure system. Of particular concern is the administration of the behind-the-wheel skills test,
which requires skilled and professional evaluators.
RECOMMENDATIONS
•
Ensure that pedestrian safety information is fully incorporated in each aspect of
driver education, training and licensing.
•
Regularly test and recertify road testers to ensure they are knowledgeable regarding
pedestrian and bicycle issues, as well as distracted driving issues.
•
Incorporate pedestrian and bicycle information into the curriculum of traffic diversion
schools and monitor its delivery.
•
Develop and deliver a multiagency public information campaign relating to changes
in the law that protects pedestrians and bicyclists (e.g. the three foot law).
•
Update the driver licensing manual so that it better illustrates common driving
scenarios that involve vulnerable road users.
•
Enhance the web based driving exam by making the test more comprehensive by
providing audio and visual content relating to driving scenarios involving vulnerable
road users so that the test also becomes a learning tool.
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IX. Evaluation Program
Both problem identification and evaluation of pedestrian crashes require effective record-keeping
by State and local government representatives. The State should identify the frequency and type
of pedestrian crashes to inform selection, implementation, and evaluation of appropriate
countermeasures. The State should promote effective program evaluation by:
•
•
•
•
•
•
•
Conducting regular problem identification and evaluation activities to determine
pedestrian fatality, injury, and crash trends and to provide guidance in development and
implementation of countermeasures;
Supporting detailed analyses of police accident reports involving pedestrians;
Encouraging, supporting, and training localities in process, impact, and outcome
evaluation of local programs;
Conducting and publicizing statewide surveys of public knowledge and attitudes about
pedestrian safety;
Maintaining awareness of trends in pedestrian crashes at the national level and how this
might influence activities statewide;
Evaluating the use of program resources and the effectiveness of existing
countermeasures for the general public and high-risk populations; and
Ensuring that evaluation results are used to identify problems, plan new programs, and
improve existing programs.
Status and Recommendations
Supporting detailed analyses of police accident reports involving pedestrians and bicyclists
The collection and analysis of traffic crash data has been discussed in Section I Program
Management.
A number of briefing session presenters referenced crash data as an important source of
information for targeting of their programs. The use of the crash data ranged from simple
fatality and injury counts to detailed reviews of individual crash reports and the use of analysis
software such as the Pedestrian Bicycle Crash Analysis Tool (PBCAT). The Florida Department
of Transportation (FDOT) State Safety Office (SSO) supplies standard reports to internal and
external customers, and also provides access to crash information through the Crash Reduction
Analysis System Hub (CRASH) website; however, this resource is targeted primarily at
identifying and testing infrastructure improvements.
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A survey of participants of a videoconference for the statewide Pedestrian Safety Action Plan
initiative in Spring 2011 showed that only a small minority of stakeholders (21.7 percent) were
very satisfied with their approach to identifying pedestrian crash locations as a part of their
pedestrian safety efforts, while 31percent indicated that they did not have any method of
identifying pedestrian crash locations.
The Traffic Records Coordinating Committee (TRCC) actively seeks to increase the timeliness,
quality and availability of traffic records, including police crash reports. The Department of
Highway Safety and Motor Vehicles (DHSMV), the custodian of traffic crash records, is
developing a new electronic crash reporting system that could improve the quality, timeliness
and availability of police-reported traffic crashes.
The information captured on the standard crash form is subject to the interpretation of the
reporting officer. Little training or guidance is currently available to law enforcement agencies
specific to pedestrian traffic safety laws that may affect how crash reports are currently being
coded. How pedestrian crashes are coded on the crash form can have a large influence on how
fault may be attributed, or how the crash type might be categorized or typed. This is a common
concern for states attempting to promote both increased pedestrian enforcement and more
detailed crash analysis.
As the State moves toward an all-electronic crash reporting system, care should be taken to
ensure that all the data elements of interest to traffic safety and pedestrian safety analysts are
included in the revised crash form. Further, training should be provided to law enforcement
officers on the importance of fully completing the crash report and how completion of the form
can help to save the lives of Florida’s most vulnerable road users.
Currently, there is no statewide repository for short form traffic crash reports. These reports are
maintained by the investigating law enforcement agency.
RECOMMENDATIONS
•
Through the Traffic Records Coordinating Committee (TRCC), involve pedestrian safety
crash analysis experts in a review of pending changes to the state standard crash form and
online reporting system to ensure that necessary data elements are included in the new
system.
•
Provide supplemental information and training to law enforcement agencies and officers
on the importance of completing crash forms and the benefits to the community of
completing the form correctly and completely.
•
Ensure that the revised electronic crash system will meet the reporting needs of critical
traffic safety partners, including the Florida Department of Transportation (FDOT).
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•
Establish a statewide repository for all crash reports, including short-form reports.
Conducting and publicizing statewide surveys of public knowledge and attitudes about
pedestrian and bicyclist safety
FDOT implements an annual user satisfaction survey to gather input from the public. While this
document does not focus on pedestrians, it does include questions related to pedestrian mobility.
In response to the statement, “The timing of traffic signals allows pedestrians enough time to
cross state roads”, 61 percent of Florida residents who responded said that they agreed or
strongly agreed. Seventy-eight percent of non-residents who responded said that they agreed or
strongly agreed.
Surveys of road user knowledge, attitudes and behaviors can be extremely useful in identifying
gaps in knowledge, prevailing attitudes that may affect the development of campaign messages,
and common risk behaviors that can be targeted by safety programs. Over time, these results can
also be used to track the impact of safety programs.
RECOMMENDATIONS
•
Develop and deploy a simple survey tool to assess citizens’ knowledge of Florida
traffic law and their attitudes toward pedestrian safety issues, and to gather
information about their behavior as pedestrians and motorists.
•
Publish the results of this survey on an annual basis in conjunction with the release of
annual traffic crash data, and provide this information to pedestrian safety partners.
•
Use the results of the survey in the evaluation of the State’s pedestrian safety efforts.
Maintaining awareness of trends in pedestrian and bicyclist crashes at the national level
and how this might influence activities statewide
Several briefing presenters noted that the Dangerous by Design report produced by the national
advocacy organization Transportation for America generated attention from media, agency staff
and elected officials. This report uses population, traffic crash and census data to calculate a
“hazard index” for the largest metropolitan regions in the US. Orlando-Kissimmee, Tampa-St.
Petersburg-Clearwater, Jacksonville, and Miami-Fort Lauderdale-Pompano Beach had the
highest hazard indices among all 52 metropolitan regions studied.
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FDOT SSO produces annual matrices of serious injury and fatal pedestrian crashes, with
rankings of counties and cities by the total number of crashes. These matrices do not include
comparisons to national rates or rates in other states.
RECOMMENDATION
•
Publish an annual report card on pedestrian crashes within the State, with
comparisons to national averages. This publication should include a progress report
on the implementation of the statewide strategic pedestrian safety plan, highlighting
significant accomplishments at the state, regional and local levels.
Evaluating the use of program resources and the effectiveness of existing countermeasures
for the general public and high-risk populations
Ensuring that evaluation results are used to identify problems, plan new programs, and
improve existing programs
Encouraging, supporting, and training localities in process, impact, and outcome
evaluation of local programs
There are countermeasures, such as high visibility enforcement, that have been shown to reduce
pedestrian crashes, and approaches that combine education, enforcement and engineering.
Effective programs have been developed in Florida communities; some of these are identified in
other sections of this report. These proven countermeasures may be replicated or adapted to
address unique local pedestrian safety problems. In this way, state and local safety program
managers can avoid “reinventing the wheel” and can invest limited resources in measures that
are known to save lives and/or prevent pedestrian injuries.
The TSS includes requirements for process and outcome objectives in its annual grantmaking
process for education, enforcement and paid media outreach. These measures may include
numbers of presentations given or numbers of citations issued, for education and enforcement
campaigns, respectively. For large paid media outreach campaigns, TSS grantees are required to
perform pre- and post evaluations to assess the impact in accordance with National Highway
Traffic Safety Administration (NHTSA) grant management guidelines. There has not been a
large, statewide paid media campaign focused on pedestrian safety in Florida and no such an
evaluation has been conducted. Progress of TSS grants toward stated goals is monitored on a
quarterly basis.
One TSS grantee reported that they specifically wanted to conduct an impact evaluation of their
grant-funded safety initiative, but were unable to do so due to a lack of funding. Other safety
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program representatives were successful in forming partnerships with universities or health
agencies to assist in conducting evaluations, however these examples are limited.
In its Annual Report to NHTSA on its activities funded in Federal Fiscal Year 2010, TSS
includes statewide pedestrian fatality goals and the actual number of pedestrians killed for the
prior three years. Annual fatalities for the current year were not available at the time the report
was published. This is typical for highway safety office annual reports, which are due before
final year-end crash data is available. Limited performance data is included in the Annual
Report.
TSS staff indicated that they routinely review past performance of grantee projects to help
determine worthiness of future funding. This is a useful evaluation of the grantees ability to
execute grant-funded projects and to meet established performance goals. However, this is not
an evaluation of the effectiveness of the project in achieving reductions in specific traffic
crashes.
Program evaluation of small-scale highway safety interventions with limited budgets is often
problematic. Evaluation methods that are convenient, such as counting number of materials
distributed are not evaluations of the effectiveness of the intervention in reducing crashes,
injuries and fatalities. Evaluating a program based on the reduction in traffic crashes after the
implementation of a countermeasure, without controlling for all confounding variables is also not
a valid method of program evaluation.
Planning for evaluation should occur in each stage of program development and implementation.
NHTSA recommends that highway safety program evaluation include the following steps 34:
•
•
•
•
•
•
•
Identify the problem you are trying to solve
Develop reasonable objectives
Develop a plan for measuring results
Gather baseline data
Implement your program
Gather data and analyze results
Report results
RECOMMENDATIONS
•
Provide technical assistance and training to highway safety grant applicants on
appropriate program evaluation methods at the beginning of the grant solicitation cycle.
34
The Art of Appropriate Evaluation, A Guide for Highway Safety Program Managers, DOT HS 811 061,
December 2008
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•
Annually, develop and distribute a list of proven countermeasures and model
programs to reduce pedestrian traffic crashes, including past grant projects.
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Credentials of Assessment Team
George Branyan
George Branyan is the Pedestrian Program Coordinator for the District of Columbia Department
of Transportation, a position he has held since 2005. Before joining DDOT, Mr. Branyan served
for five years as the Pedestrian, Bicycle, and School Zone Safety Coordinator for the Maryland
Highway Safety Office. Mr. Branyan coordinates engineering, education and enforcementrelated programs aimed at improving pedestrian safety and access in Washington, DC. Most
recently, he oversaw the development of DC's first Pedestrian Master Plan, completed in the
spring of 2008. Mr. Branyan has partnered with DC's Metropolitan Police Department to train
nearly 400 officers in effective enforcement techniques. In 2001 he launched the Maryland
Pedestrian Safety Enforcement Initiative, a statewide program that provided training and
recognition programs, resources, and overtime grant funds for local police departments to
encourage more aggressive enforcement of pedestrian safety laws. In 2006 he received the
Community Transportation Award from the Washington, DC, Section of the Institute of
Transportation Engineers.
Susan N. Bryant, M.A., M.B.A.
Susan (Sue) Bryant is currently a consultant for a firm based in Iowa where she recently
returned after almost thirty years of employment with the state of Texas. She retired as the
director of the public transportation division of the Texas Department of Transportation
(TxDOT). The public transportation division had 180 employees and an approximately $150
million budget of federal and state grant programs for rural and small urban transportation
systems, the state’s medical transportation program, and public transportation planning. Prior to
becoming division director, she served for over ten years as the director of the Texas traffic
safety program. During her career with TxDOT, she held the position of state traffic safety
director, assistant to the deputy director for field operations, and highway safety planner and
traffic safety program manager. She served as secretary and member of the board of the
National Association of Governors’ Highway Safety Representatives (now Governors Highway
Safety Association) and member of the law enforcement committee for the Transportation
Research Board. A Phi Beta Kappa graduate with Highest Honors in English from the University
of Iowa, she holds a master’s degree in communications from the University of Iowa and a
master’s degree in business administration from the University of Texas at Austin.
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John Ciccarelli
John Ciccarelli is an experienced transportation planner and designer with particular expertise in
bicycle and pedestrian safety issues. He is an independent consultant specializing in bicycle and
pedestrian modes. John is a past bicycle Program manager for Stanford University, where he
created and implemented a comprehensive bicycle facilities program to improve safety and
accessibility for Stanford’s thousands of student and commuter cyclists. He holds a Bachelor’s
Degree in Electrical Engineering. He has instructed for the UC system and Developed and taught
bicycle planning workshops through US Davis Extension. He is a certified League Cycling
Instructor (LCI) and teaches bicycle driver education classes for adults and teens.
Peter C. Moe
Peter Moe is the Section Chief for Safety Programs within the Maryland Highway Safety Office
(MHSO), a division of the Maryland Motor Vehicle Administration (MVA). He is responsible
for oversight of major safety program areas, including impaired-driving prevention, occupant
protection, safe routes to school, and traffic records. In addition, he serves as the coordinator for
motorcyclist safety, bicycle safety, and pedestrian safety. Mr. Moe is the Chair of the MHSO
Statewide Task Forces on bicycle and pedestrian safety and motorcycle safety. He is also a
member of the Montgomery County Pedestrian Traffic Safety Advisory Committee and serves
on the Steering Committee for the Maryland Strategic Highway Safety Plan.
Prior to joining MHSO, Peter was the bicycle and pedestrian program manager for the National
SAFE KIDS Campaign/SAFE KIDS Worldwide where he was responsible for the SAFE KIDS
Walk This Way and Ready to Roll programs. He served as Deputy Director of the National
Center for Bicycling and Walking/Bicycle Federation of America where he developed and
delivered training and technical support programs covering a wide range of bicycle and
pedestrian issues, including pedestrian and bicycle facility planning and design, community
organizing, and safety programs. Peter has been involved in bicycle and pedestrian safety
programs since 1992.
Mark Plotz
Mark Plotz is Program Manager for Walkable Community Workshops with the non-profit
National Center for Bicycling & Walking (NCBW). He has been working at NCBW since 2003
and has served as a lead facilitator for the Walkable Community Workshops (WCW) for three
years. WCWs are interdisciplinary half-day workshops that open to the public, which bring
together residents, public health advocates, transportation planners, engineers, law enforcement
officials, and others, to develop communities where walking is a safe and desirable
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transportation choice. In 2004, NCBW earned the Institute of Transportation Engineers'
Pedestrian Project Award for Education for the Walkable Community Workshop series. Mr.
Plotz has served as a Safe Routes to School instructor for the Active Living Resource Center's
City Safe Routes to School program. He is currently involved in a project in Flint, Michigan, that
is attempting to establish a youth action council in the local government. The project is a natural
extension of his work with increasing public involvement in local government that began with
two terms in AmeriCorps, and continued through his Masters Public Administration from
Minnesota State University.
Janice Dawson Simmons
Janice Simmons is an administrative consultant for Technical Assistance Teams (TAT)
throughout the nation. She has worked with teams on assessment programs since 1991,
beginning with The Emergency Medical Services Program Assessment for the State of New York.
In addition to Pedestrian Safety, she has served as a team member on programs that include
Driver Education, Motorcycle Safety, Impaired Driving, Occupant Protection, Enforcing
Underage Driving Laws, Traffic Records, Emergency Medical Services, and Emergency Medical
Services Reassessments. After graduating Maryland Institute College of Art, Baltimore
Maryland, she taught design, criticism and aesthetics, and art history courses. In addition to her
work with education and assessment programs, she works with a design firm in Annapolis,
Maryland.
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Time/Date
8:00 – 9:30
9:30 – 9:45
9:45 – 10:45
10-45 – 11:00
11:00 – 12:00
12:00 – 1:00
1:00 – 2:00
2:00 – 2:15
2:15 – 3:15
3:15 – 3:30
Monday, January 9, 2012
FDOT State Safety Office/Program Management
FDOT District One Secretary Billy Hattaway
Lora Hollingsworth – Chief Safety Officer
Ken Ellis – Traffic Safety Administrator
Trenda McPherson- Pedestrian Safety Program Mgr.
Dr. Pei-Sung Lin – University of South Florida
Break
Program Management
Ralph Salvas – Pedestrian Safety Program Mgr.
Dennis Scott – FDOT Pedestrian/Bicycle Coordinator
Pat Pieratte – FDOT Safe Routes to School
Providance Nagy – Florida School Crossing Guard
Training Program
Break
Multidisciplinary Involvement
Dan Moser – Florida Bicycle Association conf call
Ken Bryan – Rails to Trails Florida Office
Dean Perkins – FDOT ADA Compliance
Lunch
Multidisciplinary Involvement
Mighk Wilson – Metroplan Orlando Smart Growth conf
call
Charlie Hood – DOE Student Transportation Director
Rob Magee - Florida Bike Ped Partnership Council
William Roll – Tindale Oliver conf call
Break
Legislation, Regulation, and Policy
Kathleen Neill – FDOT Policy and Planning
Dwight Kingsbury – FDOT Asst. Ped/Bike Coordinator
Mary Anne Koos – FDOT Roadway Design
Break
Tuesday, January 10, 2012
Highway and Traffic Engineering
Chester Henson - FDOT Roadway Design Office
Mark Wilson – FDOT State Traffic Operations Engineer
L.K. Nandam – FDOT District 1 Traffic Operations Engineer
David Skrelunas – FDOT District 7 Safety Programs Manager
Break
Communication Program
Dick Kane/Eric Carr – FDOT Public Information Office
FDOT District One Secretary Billy Hattaway
Francis Gibbs – FDOT Chief of Staff
Jeanette Rouse FDOT District 7 – See the Blind Spots
Break
Outreach Program
Julie Bond – USF Walk Wise. Bike Smart and
Clearwater Flag Program (15 min pres)
Christine Stinson – Walk Safe Miami (15 min pres)
Dan Connaughton– Florida Traffic & Bicycle Education Prog
John Egberts – Florida Traffic & Bicycle Education Program
Lunch
Wednesday, January 11, 2012
Driver Education and Licensing
Major Timothy Ashley – DHSMV
Lt. Jeff Frost – DHSMV
Evaluation Program/Data and Analysis
Bonnie Scott-Walls - DHSMV
Wilton Johnson - DHSMV
Break
Evaluation Program/ Data and Analysis
Joe Santos – FDOT Safety Engineer (Data)
Lisa Vanderwerf-Hourigan - DOH (Injury Prevention)
Leilani Gruener– DOH (Injury Prevention)
Break
Program Evaluation/Wrap-up/Q & A
Lora Hollingsworth – Chief Safety Officer
Ken Ellis – Traffic Safety Administrator
Trenda McPherson- Pedestrian Safety Program Mgr.
Dr. Pei-Sung Lin – University of South Florida
Lunch
Outreach Program
Gail Holley – Safe Mobility for Life Program
Max Rothman- Steps. Pasos Seguros (Miami Dade)
Chief Bodenhiemer – Polk County Seniors and Law
Enforcement Together (SALT Program) conf call
Break
Outreach Program
Dekova Batey – City of Gainesville Ped/Bike Coordinator
Gary Tait – D7 Hillsborough County Safety Action Plan
Deb Stallings – District One CTST Coordinator
Sarita Taylor – District One Ped/Bike Coordinator
Break
Assessment Team
Begins to Write Report
**If you are scheduled for a Conference Call
Please call (850)222-8822 and ask for
extension 615**
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Florida Pedestrian Safety Technical Assessment
3:30 – 4:30
Law Enforcement
Officer Chris Fender - FSU PD
Colonel Jim Previtera – Hillsborough County SO
Lt. Robert Ura – Hillsborough County SO
Outreach Program
Dr. Louis Malenfant - UF Crosswalk Study/Education
Program
Andrea Atran – Florida’s Community Traffic Safety Teams
Stephan Harris – Volusia County TPO Comprehensive
Program
Time/Date
Thursday, January 12, 2012
Friday, January 13, 2012
8:00 – 4:30
Assessment Team
8:30 a.m. to 12:00 p.m.
Works on Report
Assessment Team Delivers Report
Lora Hollingsworth – Chief Safety Officer
Ken Ellis – Traffic Safety Administrator
Trenda McPherson- Pedestrian Safety Program Mgr.
Dr. Pei-Sung Lin – University of South Florida
FDOT District One Secretary Billy Hattaway – Conf Call
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