SPEED MANAGEMENT

ROAD SAFETY STRATEGYIn 2008, the State Government released its 12-year road safety strategy, Towards Zero. Towards Zero set out the ambitious target of 11,000 fewer people killed or seriously injured (KSI) by 2020, which is a 40% reduction from the baseline period of 2005-2007.

The baseline figure for speed related KSI was 642. Using a 40% reduction a figure of 385 KSI is the government’s target for 2020.

Modelling undertaken in the development of Towards Zero showed that 3,200 fewer people would be killed or seriously injured if safe speed initiatives were introduced in Western Australia (WA).

There is clear evidence that lower speeds mean fewer crashes, fewer deaths and fewer serious injuries in Western Australia.

INFO

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CONTENTS

Definition

What is the problem?

What is the supporting research and evidence?

What are the countermeasures? Legislation Recent Legislative Changes Enforcement Education Community Engagement Self Explaining Roads

What is the future focus?

References

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DEFINITIONSpeeding encompasses excessive speed (driving above the speed limit) or inappropriate speed (driving too fast for the conditions, but within the limits) (OECD/ECMT 2006).

WHAT IS THE PROBLEM?The estimated figure of people KSI in speed related crashes for 2017 was 336. This is a 48% reduction of the baseline figure (n=642) and a 13% reduction on the 2020 government target of 385 KSI1.

This still means an average of 58 people die in speed-related crashes each year and many others are seriously injured.

The definition of speed lends to the theory that speeding is made up of two elements; Excessive speed, that is, driving above stated speed limits and Inappropriate speeds for the conditions of the road. The first element is the choice of the driver, however, the second element is more complex and consists of human error and natural conditions, such as prevailing weather, road conditions, other road users, etc.

Western Australia has many open/rural roads that are subject to large amounts of sand and dust collecting on road surfaces. When this is mixed with rain or motor oil the driving conditions become considerably more unpredictable. When excessive speed is added combined with the sand/dust/rain mix, the driver puts themselves and other road users in considerable danger.

Western Australia has an extensive road network (≈185,599km2) consisting of extremely remote rural roads through to highly urbanised roads and uses at least eight different speed limits to manage the speed of road users. Speeding and speed related crashes continues to feature heavily when reporting annual KSI figures.

It is difficult to pinpoint one specific reason why speed related crashes occur, however a combination of environmental factors, such as:

• Driver distraction (fatigue, stress levels, etc.)

• Road geometry (road surface, narrow road, etc.)

• Roadside environment (objects next to roads, road access points, etc.)

• Temporary environmental factors (lighting conditions, other road users, etc.)

• Road signs and markings (static signs may have little effect) can all affect the speed of a driver (Edquist et al, 2009).

The Safe System policy dictates that speed limits for the road and traffic system use human biomechanical and human competency as the design parameter to set the values (Mooren 2014). Driver attitudes to speeding vary and rely extensively on knowledge of the road network and what is considered appropriate speed behaviour (Fildes et al, 1991).

Regional and metropolitan/urban areas, by their very nature, have different types of road system and therefore differing speed restrictions. Regional roads tend to be more open with roadside verges, higher speed limits and less road signs, markings and furniture, whereas metropolitan/urban areas have very delineated roads, are highly regulated speed wise and have an abundance of road signs, markings and furniture. As can be seen, the temptation to increase speeds in

1 Main Roads WA Integrated Road Information System (IRIS) – prepared by the Road Safety Commission2 Road Safety Commission – Information Centre (Includes state and local roads and DPaW administered roads, but EXCLUDES forestry roads, national park roads and roads on Rottnest Island and Kings Park)

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regional areas, where there is little in the way to stop or counter speeding, is much more pronounced. In 2017, 57% (n=52) of regional fatalities occurred in 110km/h speed zones while 26% (n=18) of metropolitan fatalities occurred in 60km/h speed zones. Of all 2017 crash related fatalities, 36% (n=58) occurred in 110km/h speed zones3.

In 2015, costs associated with a single crash totaled approximately $2,929,8644. This figure is derived from the associated costs of on-going care, funeral costs, ambulance and in-patient treatments, loss of income to the casualty and the local economy, repairs to and/or replacement of vehicles and property involved in the crash. The financial ramifications associated with speeding are enormous and place a huge amount of pressure on an already weakened economy. Total estimated costs for 2015 for speeding fatalities was $169,932,112 (58 fatalities x $2,929,864).

3 Road Safety Commission – Preliminary Summary of Fatalities on Western Australian Roads4 Road Safety Commission – Reported Road Crashes in Western Australia 2015, December 2016

WHAT IS THE SUPPORTING RESEARCH AND EVIDENCE?In research recognised around the world, Nilsson proved that there is a clear relationship between changes in mean speed* and crash outcomes. The Nilsson model shows a 5% increase in mean speed leads to around a 10% increase in all injury crashes and a 20% increase in fatal crashes. Similarly, a 5% decrease in mean speed leads to 10% fewer injury crashes and 20% fewer fatal crashes (Nilsson, 1981).

* Mean speed: The distance an object moves under uniform acceleration is equal to the width of the time interval multiplied by its velocity at the midpoint of the interval (its mean speed) – Encyclopaedia Britannica, Inc.

Figure 1: Relationship between change in mean speed and crashes (Nilsson, 2004)

To prevent death and serious injury, impact speeds must be within the limits of human tolerance. Survivable speeds for different crash types are:

• Roads with possible conflicts between crashes and unprotected users (pedestrians, cyclists) – 30km/h.

• Intersections with possible side-on conflicts between cars – 50km/h.

• Roads with possible frontal conflicts between cars – 70km/h.

• Roads with no possible frontal or side-on conflicts between road users - >100km/h (Mooren et al, 2014).

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Research

The Commission manages a program of research through the Curtin-Monash Accident Research Centre (CMARC) that includes investigations into speed management. In 2018/19 CMARC are mapping speed management options in regional areas of Western Australia in consultation with Main Roads WA.

Speed Enforcement

A 2015 evaluation by Monash University Accident Research Centre estimated that increased use of mobile speed cameras is contributing up to a 12% reduction in fatal crashes in the metropolitan area and between 4-8% in regional Western Australia compared to 2008, with most gains coming since 2010 when levels of speed enforcement increased (Newstead, 2015).

In addition to enforcement in the metropolitan area, there is currently a program to increase high visibility police patrols on regional highways and major roads up to 400 km from Perth and in and around regional towns. Further use of mobile and point to point enforcement are priorities for the Road Safety Council.

Reductions in Speed Limits on Unsealed Roads

Australia has relatively high-speed limits across much of its road network compared with similar roads in comparable countries. Crash risk is high on many low standard regional and remote roads. Two-thirds of all road crash deaths occur in regional and remote areas, mostly in 100 km/h or higher zones. The road network in Western Australia is very large and in many cases population density means it is not feasible to address this risk with infrastructure improvements alone.

Currently the default speed limit on non-residential roads in Western Australia is 110km/h. This applies regardless of the quality of the road.

Reviews have shown that changing the speed of vehicles from 100 km/h to 90 km/h can be expected to produce a 35% reduction in fatal crashes and a 31% reduction in serious injury crashes (National Road Safety Action Plan, 2018). A trial of speed limit reductions would be in line with the National Road Safety Action Plan 2018-2020 which proposes to review speed limits on high risk regional and remote roads, in consultation with the community.

Reductions in Speed Limits in Areas used by Pedestrians and Cyclists

Walking and cycling can provide many benefits, including improved health, and reduced pollution and congestion. However, pedestrians and cyclists are vulnerable road users, as they have little or no protection in the event of collisions. Certain groups of pedestrians are particularly vulnerable, such as the elderly, the young and those who are impaired by alcohol or drugs.

There is risk for vulnerable road users even at low speeds, but it is clear that the chance of injury or death increases dramatically above certain speed thresholds. There is a large increase in deaths for collision speeds above around 30 km/h. Possible solutions include:

• Lower speed environments;

• Separation of pedestrians and cyclists from other road users; and

• Provision of appropriate crossing facilities.

Solutions may also lie in improved vehicle design and technology, road user education, training and enforcement.

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In Western Australia vulnerable road users are most commonly involved in KSI crashes in 50 and 60km/h speed zones. In the course of the Towards Zero strategy, pedestrian KSI numbers have reduced 12% but are still not in line with the 2020 target. For people riding bicycles there has been a 38% increase in KSI over the course of the Towards Zero strategy.

Speed Monitoring

Speed monitoring surveys are a valuable tool in assessing high speed stretches of road and driver behaviour. The tables below show data collected over a number of years with a final comparison of the final two years and the start and finish years of the surveys.

Fig 2: Metropolitan Perth Speed Survey 2000-2015

Fig 3: Regional WA Speed Survey 2000-2015

As can be seen from both data sets, compliance in 2000 was relatively low, with between approximately 50-66% of road users obeying speed limits and the percentages of drivers driving 10km/h above the speed limit being worryingly high (4-15% across both survey areas). The data presented for 2015 shows a marked decrease in the percentage of drivers 10km/h above the speed limit, however, there is still a worrying trend of approximately only 60-75% of compliance, both in regional WA and metropolitan Perth. This shows that between 25-40% of drivers are still speeding across all speed zone areas.

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What is clear from the data is the percentage of metropolitan drivers 10km/h above the speed limit is gradually declining, however, the percentage of regional drivers 10km/h above the speed limit seems to have taken a slight upturn in 2015.

Reducing the average travel speed across the network is the most effective way to reduce road trauma and would produce significant and immediate road safety benefits. One method of modifying a drivers behaviour is to monitor average speeds between certain points over a fixed distance. Average speed safety cameras have the ability to monitor a vehicles speed between two points. The system consists of two speed detection cameras located at a known distance apart.

The system measures the time taken by a vehicle to travel between both camera sites, with an image of every vehicle being captured by the first camera, together with a record of the time when the image is taken.

The second camera repeats the same process and through a calculation of dividing distance between the cameras and the time taken for the vehicle to travel between the sites, an average speed can be ascertained. If the average speed of the vehicle exceeds the speed limit, then the driver of the vehicle has committed a speeding offence and may be liable for an infringement.

A trial, using point to point cameras was conducted between during 2016-2017 on the Forrest Highway, using various location points along both sides of the road. The trial collected data over six periods and was analysed for any trends.

The below images show some of the analysed data and it is evident that there were many instances of speeding between the trial sites.

Fig 4: North and Southbound data – N of Old Coast Road (Leschenault) – Forrest Highway

Fig 5: North and Southbound data – S of Paganoni Road – Forrest Highway

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Fig 6: North and Southbound data - N of Old Coast Road – Forrest Highway

The trial of the point to point cameras was extensively advertised, both on radio and television and yet people were either unware that they were in the trial area or simply didn’t understand what the trial was trying to achieve. As can be seen in all three examples, the average speeds recorded vary from <110km/h through to >135km/h in some cases.

The surveys measure vehicle speeds and compliance with speed limits at a range of sites on rural and metropolitan roads. These surveys are used to modify speed-related programs to ensure they achieve effective outcomes. The indices derived from the speed surveys are used as a basis for assessment of effectiveness of existing programs and for formulation of new speed-related strategies (Road Safety Council, 2014).

Note: Reports for surveys conducted up to 2018 are currently being finalised and will be included in the future.

WHAT ARE THE COUNTERMEASURES?Legislation

The Road Traffic Act 1974 (the Act) and Road Traffic Code 2000 (the Code) provides speed enforcement regulation and are continually evaluated to ensure penalties are contemporary and relevant.

Recent Legislative Changes

To legislatively address the instances of speeding by increasing penalties, various amendments to the Act and Code have been implemented:

• September 2014 Road Traffic Code 2000 – Penalties increased for various offences, including speeding

• July 2017 Road Traffic Code 2000 – Penalties increased for speeding where the driver is more than 29km/h but not over 40km/h and over 40km/h above the speed limit

• October 2017 Road Traffic Code 2000 - Updated to make speed regulations easier to read and the introduction of evasive action in relation to speed cameras. Offence created for using any device which prevents or adversely affects the operation of the average speed enforcement system and by obscuring licence plate

• January 2018 Road Traffic Code 2000 – Introduction of regulations for drivers to slow down to 40km/h when approaching stationary incident response vehicles and move into an adjoining lane if possible – penalty offence

• Due November 2018 – Amendment to the Road Traffic Act 1974 – s.49AB(1) dangerous driving. Reducing the current circumstances of aggravation from driving 45km/h above the speed limit to 30km/h and increase in penalty.

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Enforcement

Evidence shows that the deterrent effect of speed enforcement achieves results by slowing down drivers and subsequently calming the speed environment on the network.

Police enforcement of traffic laws is intended to influence the behaviour of road users in such a way that their risk of becoming involved in a crash or causing a crash decreases (Wegman & Goldenbeld 2006). The overall preventative effects of enforcement are generally greater if the subjective risk of the offender being caught is higher, penalty is more severe, certainty of punishment is increased, and penalty is imposed more rapidly. (Zaal, 2004; Makinen et al. 2003).

Current WA enforcement options include:

• Covert mobile speed cameras on urban highways (arterial roads)

• Randomly-scheduled overt mobile speed cameras on urban and rural highways

• Covert mobile speed cameras on publicly announced routes

• Moving mode (mobile) radar units on rural highways (undivided) and rural local roads

• Hand-held laser speed detectors operated overtly on urban local roads

• Fixed speed cameras on Perth freeways

• Point-to-point speed camera systems on Perth freeways and urban and rural highways

(Source: Cameron & Delaney. n.d.)

Fig 7: Relationship between speed enforcement surveillance and change in the number of injury accidents according to Elvik (2001)

Evidence shows that a relationship exists between enforcement level and percentage change in the number of crashes (Elvik 2001)

WA Police Force continue to operate the Automated Traffic Enforcement program in Western Australia. To combat speeding in high risk areas, a tranche of speed enforcement cameras has been introduced and/or installed in the following locations:

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• Two new fixed camera sites in regional areas, one in Wundowie on Great Eastern Highway and one in Gabbadah on Indian Ocean Drive

• Five new red-light speed cameras installed

• In September 2017 the Average Speed Safety Camera Zone on Forrest Highway began enforcement (see figs 4-6)

• 11 in-vehicle mobile cameras were replaced in 17/18 financial year.

The Commission is currently supporting the City of Vincent who are scoping a trial of lowering speed limits to 40km/h in a defined residential area. This is in line with Action 6 of the National Road Safety Action Plan 2018-2020 which is to reduce speed limits to 40km/h or lower in places with a high volume of pedestrians and cyclists.

Other local government areas that are either introducing a reduction in the speed limit or are considering it are:

• Bayswater Town Centre

• Victoria Park

• Subiaco.5

Education

Various educational aides are available, to both the private citizens and industry, that discuss and address speeding. The National Road Safety Partnership Program provides information for both sides of the community, such as Drive to the Conditions, a fleet safety information pamphlet and a fact sheet, Stopping Distances, which highlights the distances required to safely stop when travelling at specific speeds.

Education plays a major part in community awareness of the problem of speeding. Youth programs, such as the School Drug Education and Road Aware (SDERA) scheme, in conjunction with the Transport Accident Commission (TAC) and VicRoads, aims to “education young people to make safer choices for their health and wellbeing, and the prevention of road related injuries and harms from drug use (SDERA, 2018)”. SDERA provide fact sheets, as part of their Keys for Life program, that deal with good and bad driving techniques and have engaged with over 1200 WA schools.

Community Engagement

Market research is undertaken over a range of road safety topics including speeding. This research includes attitude/behaviour segmentation, and campaign awareness tracking. Campaigns targeting speeding continue to be developed and publicised through the Road Safety Commission. A recent example, We’re Watching Your Speed – Are You? (currently airing), can be located at the Commission’s website.

Figure 8: We’re Watching Your Speed – Are You?, Road Safety Commission, 2018

5 Communitynews.com.au - Minister Michelle Roberts Parliament June 14, 2018

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The government also supports preventative programs to educate the community about the risks of speeding, which are funded by the Road Trauma Trust Account (RTTA). Some of these include:

• Community Grants – 15 of the 77 road safety community grants allocated in 2017/18 carried a safe speed message to metropolitan and regional areas

• RoadWise - RoadWise operate a state-wide network of road safety educators and organisers who promote local road safety messages, develop local activities, and coordinate local grants.

Self-Explaining Roads

As cities grow and become more crowded, innovative ideas are required to improve the road infrastructure whilst causing the least amount of disruption to the flow of traffic. Low cost improvements, which remove the onus of the driver having to concentrate on road signs or markings (which are often ineffective) and impart a more conceptual notion of a driver’s surroundings, are now becoming more commonplace. Roads specifically designed to look different to other roads and are designed to give the impression of a busy pedestrian area which naturally activates a driver’s instinct to slow down, are a solution to address speeding in built up areas; in other words, roads should be “self-explaining”, or such that the traffic environment “elicits safe behaviour simply by its design (Jan Theeuwes & Godthelp, 1995).”

Simply installing features such as roadside street art, landscaping the surrounding area, installing furniture to create pinch points, laying different road surfaces, widening pathways and introducing cycle lanes all help to give the impression of a busy, well used area.

These types of roads are not new and have been successfully installed in the United Kingdom, New Zealand and Australia. They are user friendly and the local community is often involved in the design. The City of Stirling is currently working on self-explaining roads in the Innaloo area.

Other design solutions to reduce speed focus on drivers accommodating pedestrians and cyclists using the road infrastructure. Bike Boulevards, part of the Safe Active Streets Program managed by the Department of Transport (DoT), converts quiet local streets, by reducing vehicle speed limits to 30 km/h, into areas where cyclists and pedestrians can share the road space equally and safely with motorists. Bike Boulevards are developed around the self-explaining road concept whereby street signage is kept to a minimum and encourages courteous interaction between street users (Department of Transport - www.transport.wa.gov.au/activetransport/safe-active-streets-program.asp).

Under the Safe Active Streets program the following streets have been transitioned into a safe area for cyclists and road users:

• Robertson Road Cycleway, Joondalup

• Bayswater to Morley

• Shakespeare Street, Mount Hawthorn.

WHAT IS THE FUTURE FOCUS? Evidence shows that lower speeds equals fewer crashes, fewer deaths and fewer serious injuries in WA. Research shows speed reduction would be the most successful of all possible initiatives to cut deaths and serious injuries on our roads.

The Towards Zero approach to safe speed focuses on key areas of:

• Better speed enforcement and education campaigns on speed reduction

• Further research and community consultation on safe speed limits

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• Demonstration projects to reduce travel speeds and raise community awareness of the implications of speed limit reductions (Forrest Highway point to point average speed trial)

• Targeted speed limit reductions in areas of high pedestrian activity (City of Vincent 40km/h trial).

Research shows that if a reduction of 10km/h were applied across all speed limits 5,500 less people would be killed or seriously injured (Towards Zero, 2009). Several local government areas are now trialing urban speed limit reductions to try to counter speed related crashes (City of Vincent, Shire of Moora).

The Commission intends to maintain the research programs currently in place to inform a program of works for future safety projects. Existing partnerships with the WA Police Force and other road safety agencies will increase the ability to conduct speed monitoring activities and help to adjust legislative penalties and recommendations, where necessary.

Traditional community education programs will feature heavily and targeted campaigns for the young and young adults will continue to be a priority area.

Continued alignment with the Towards Zero strategy enables the Commission to undertake further work with the WA Police Force and provide more funding for the Automated Traffic Enforcement program. This ongoing piece of work includes the upgrade, maintenance, replacement and expansion of the current speed camera network.

Reference: F18-158;D18-9173

Effective Date: 21/12/2018

Next Review: 21/12/2019

Author: Phill Rowley - Acting Policy Officer

Owner: Melissa Watts - Assistant Director (Policy)

Endorsed

DATE DETAILS ENDORSED BY

21/12/2018 Developed Melissa Watts

References B.N. Fildes, G. Rumbold, A. Leening, ‘Speed Behaviour and Drivers’ Attitude to speeding’, 1991

Jessica Edquist, Christina M. Rudin-Brown, Michael G. Lenne, ‘Road Design Factors and Their Interactions with Speed and Speed Limits’, 15 May 2009

Theeuwes, J., & Godthelp, H. (1995). Self explaining roads. Safety Science, 19(2-3), 217-225. doi: https://doi.org/10.1016/0925-7535(94)00022-U

Lori Mooren, Raphael Grzebieta, RF Soames, ‘Speed Limit Setting and the Safe System Principle’, Proceedings of the 2014 Australasian Road Safety Research, Policing and Education Conference.

School Drug Education and Road Aware, Our Mission: www.sdera.wa.edu.au

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Stuart Newstead, et al, An Evaluation of Automated Traffic Enforcement Operations in Western Australia, 1995-2013, 2015. NOT AVAILABLE TO THE PUBLIC.

G. Nilsson, ‘The effects of speed limits on traffic accidents in Sweden’, Proceedings, International symposium on the effects of speed limits on traffic crashes and fuel consumption, 1981.

Road Safety Commission, 2015 Reported Road Crashes

Road Safety Commission, 2017 Preliminary Fatal and Critical Injuries on WA roads – Summary

Road Safety Commission, Campaigns, We’re Watching Your Speed – Are You?

National Road Safety Action Plan 2018-2020

Road Safety Council Report on Activities 2013-14

Towards Zero – Road Safety Strategy 2008-2020

OECD/ECMT Transport Research Centre: Speed Management report, Paris 2006

Fred Wegman and Charles Goldenbeld, Speed management: enforcement and new technologies

Mäkinen, T., Zaidel, D.M., Andersson, G., Biecheler-Fretel, M.-B., Christ, R., Cauzard, J.-P., Elvik, R., Goldenbeld, C., Gelau, C., Heidstra, J., Jayet, M.-C., Nilsson, G., Papaioanou, P., Quimby, A., Rehnova, V. & Vaa, T. (2003). Traffic enforcement in Europe: effects, measures, needs and future. Final report of the ESCAPE Consortium. European Commission, Luxembourg.

Elvik, R. (2001). Cost-Benefit Analysis of police enforcement. Working Paper 1 of the ESCAPE project. Technical Research Centre of Finland VTT, Espoo.

Cameron, M.H. & Delaney, A.K. Speed enforcement – Effects, mechanisms, intensity and economic benefits of each mode of operation (n.d.). Retrieved from http://www.parliament.wa.gov.au/Parliament/commit.nsf/(Evidence+Lookup+by+Com+ID)/1FCF2D9BDA91C83548257E3D002C5D55/$file/Speed+enforcement+mechanisms.pdf