Report to/Rapport au:

Transportation and Transit Committee/

Comité des transports et des services de transport en commun

 

and Council/et au Conseil

 

5 June 2003 / le 5 juin 2003

Submitted by/Soumis par:  R.T. Leclair, General Manager/Directrice générale

Transportation, Utilities and Public Works/Transport, services et travaux publics

 

Contacts/Personnes ressource: 

Michael J. Flainek, P. Eng., Director/Directeur, Traffic and Parking Operations Branch/Circulation et Stationnement 580-2424, extension 26882, Michael.Flainek@ottawa.ca

Dr. Robert Cushman, Medical Officer of Health, People Services Department 580-2424 extension 23684, Robert.Cushman@ottawa.ca

Dep. Chief Larry Hill, Deputy Chief of Police, Ottawa Police Service 236-1222

 extension 5507, HillL@ottawapolice.ca

 

 

 

Ref N°: ACS2003-TUP-TRF-0017

 

 

 

SUBJECT:     INTEGRATED ROAD SAFETY PROGRAM

 

 

OBJET:          PROGRAMME DE SÉCURITÉ ROUTIÉRE INTÉGRÉ

 

 

REPORT RECOMMENDATIONS

 

That the Transportation and Transit Committee recommend that Council:

 

  1. Approve the establishment of an Integrated Road Safety Program for the City of Ottawa, consistent with Transport Canada’s strategic goal and objectives as set out in its Road Safety Vision 2010;

 

  1. Receive for information the City of Ottawa’s 2003 Report on Ottawa Road Safety, which provides detailed statistics on the growing number of drivers and vehicles on Ottawa’s roadways, and supports the need for an Integrated Road Safety Program; and,

 

  1. Direct staff to report back to Transportation and Transit Committee on the 2004 initiatives of the Integrated Road Safety Program and associated 2004 Budget implications.  

RECOMMANDATIONS DU RAPPORT

 

Que le Comité des transports et des services de transport en commun recommande au Conseil :

 

  1. d’approuver l’établissement d’un programme de sécurité routière intégré pour la Ville d’Ottawa, conforme aux buts et objectifs stratégiques de Transports Canada, tels que définis dans la Vision sécurité routière 2010;

 

  1. reçoive comme information le Rapport sur la sécurité routière d’Ottawa 2003 de la Ville d’Ottawa, qui donne des statistiques détaillées sur le nombre croissant de conducteurs et de véhicules sur les routes d’Ottawa, et souligne la nécessité de l’établissement d’un programme de sécurité routière intégré; et,

 

  1. de demander aux employés de faire rapport au Comité des transports et des services de transport en commun sur les initiatives prises en 2004 dans le cadre du programme de sécurité routière intégré ainsi que de leurs conséquences pour le budget de 2004.

 

 

BACKGROUND

 

A review of the road collision history in the period between 1988 and 1998 shows the former Region of Ottawa-Carleton (ROC) and its associated municipalities were successful in putting measures in place to help reduce collisions as well as collision related death and injury.  Statistics show:

 

This was a big accomplishment, given that population and vehicle ownership increased 15% in the same period.

 

However, since 1999 reportable and injury collisions have been rising, and fatal collisions have risen slightly.  In 2002, there were 29 fatal collisions (resulting in 30 deaths), 3,123 injury collisions (resulting in 4,307 injuries) and 13,864 reportable collisions on Ottawa’s roads.  The estimated cost of collisions in Ottawa in 2001 was nearly $140 million, the majority of which was borne by the individuals involved.  However, the general public would also have absorbed significant costs.  These costs increase when ultimate costs to the families of victims are taken into account.

 

Recognizing that statistics can fluctuate and that reducing the incidence of death and injury is always a priority even in years when collisions are at their lowest, the former ROC believed a sustained and coordinated commitment to road safety would be beneficial, both from a social and economical standpoint.  To that end, a study was commissioned in 2000 by the Road Safety Inter-departmental Steering Committee, a task force composed of representatives from the previous ROC’s Environment and Transportation and Health Departments, as well as the Police Services. 

 

The study recommended establishing a formal Integrated Road Safety Program that would:

 

At the time, the Steering Committee believed an integrated program would improve road safety for citizens while being more cost-effective and efficient for the municipal government to deliver.  This resulted in a business plan to support the development and administration of the Program.  Further, in 2002 with the need for an overall vision and an organizational structure for the Program to function, a more detailed program was developed with the assistance of a consultant highly recognized in the road safety industry.

 

Through the integration of education, enforcement and engineering initiatives (the “3E” implementation model), the City of Ottawa’s proposed Integrated Road Safety Program will coincide with and support a Transport Canada initiative to reduce by 30% the average number of road users killed or seriously injured by the 2008-2010 period (compared to the 1996-2001 period).  This initiative is set out in Transport Canada’s Road Safety Vision 2010 and is an integral part of the national undertaking aimed at making Canada’s roads the safest in the world.  It emphasizes the use of a broad range of initiatives that focus on the road’s users, vehicles, structure and surrounding environment.  Road Safety Vision 2010 is an enhanced plan that supersedes Canada’s inaugural National Road Safety Plan, Road Safety Vision 2001, which was officially launched in 1996.

 

The strategic goals of Road Safety Vision 2010 are to:

 

According to the Road Safety Vision 2010 report, Canada is ranked fifth among OECD (Organization for Economic Cooperation and Development) member countries for the safest roadways.  The document states “the Canadian road safety community is certainly moving in the right direction; but … continued efforts must be made to promote successful existing strategies and introduce targeted initiatives.”

 

The purpose of this report is to recommend the establishment and implementation of an Integrated Road Safety Program for the City of Ottawa.  The objective of the Program is to create new and enhance existing initiatives to improve road safety through the integration and optimization of available resources, as well as to raise awareness of road safety priorities.  It is recognized that a more coordinated approach to road safety programs and awareness of road safety’s importance will help reduce the number of road collisions, injuries and fatalities, making Ottawa’s roadways and intersections safer for pedestrians, cyclists and motor vehicle users. 


 

Statistics show that over the past 25 years, gains in road safety have been achieved despite a steady increase in the City’s population, a faster pace of living, and an increase by 80% in the number of vehicles on the road.  Evidence also states that the majority of road collisions are due to driver error and are preventable.  Statistics on driver behaviour and trends are outlined in the newly published 2003 Report on Ottawa Road Safety, available from the City Clerk’s Office.

 

The City of Ottawa aims to reduce collisions on roadways by implementing an Integrated Road Safety Program that is based on a standard “3E” approach to road safety, where the 3 “E’s” represent Engineering, Enforcement, and Education.  This model will serve current 2003 needs; it would also serve as the foundation for a series of initiatives the City will implement as part of coordinated programming for road safety in 2004 and beyond. 

 

In addition, an Integrated Road Safety Program will complement and respond to priorities in two of the draft Ottawa 20/20 growth management plans – the Transportation Master Plan and the Human Services Plan, which make a commitment to reduce traffic-related injury, disability and death.  It will also complement at least two of the growth principles outlined in Ottawa 20/20 that encourage personal safety and security in our community.  They are “A Caring and Inclusive City”, and “A City of Distinct, Livable Communities”.

 

 

DISCUSSION

 

A recent newspaper editorial (Ottawa Citizen, 28 April 2003) stated that Ontario roadways are safer than any other jurisdiction in North America based on 2001 road fatality rates.  Public policy, engineering standards and education initiatives have all played a role in achieving this record.  However, in Ottawa, more recent fatality and injury statistics are beginning to show an upward trend.

 

The Transport Canada Road Safety Vision 2010 study states that despite Canada’s fifth place ranking for safe roads among OECD countries, it has a fatality rate that is more than 20% higher than the leading country, Great Britain.  This suggests that while roadways in Canada and Ontario are comparatively safe, there is room for improvement.

 

The recently completed 2003 Report on Ottawa Road Safety offers convincing evidence of the need for improvement and where special emphasis for new safety initiatives can be placed.  For example, road collisions in Ontario are the leading cause of death for young people aged 16-24.  In Ottawa, that age group represented only 13% of the licensed population in 2001; however, they were involved in 19% of the total collisions, and accounted for 32% of the fatally injured drivers, and 33% of all traffic fatalities.

 

There are also other related road safety concerns that have a big impact on the community and quality of life for individuals.  For example:

 

Road safety is a quality of life issue that has consequences both to public health and the community in general. Although positive strides have been made in the last two decades to reduce fatalities and injury, the frequency with which they still occur demands our attention.

 

A long-term strategy to improve road safety should begin with an initial five-year program designed to maximize available resources and promote awareness.  Measurable results would be visible after the first two to three years and allow for the program to be accurately evaluated and monitored.  

 

The foundation for an Integrated Road Safety Program rests on a:

 

Vision:              To make roadways in the City of Ottawa safer for the pedestrians, cyclists and motor vehicle users who use them; and,

 

Mission:            To work in parallel with Transport Canada to achieve its goals, objectives and targets through the implementation and coordination of City of Ottawa road safety engineering, enforcement and education initiatives. 

 

Currently, there are approximately 70 individual road safety-related initiatives carried out annually in the City of Ottawa.  They include programs for impaired driving, aggressive driving, in-vehicle restraint systems, and pedestrian and cycling travel.  The majority of these initiatives are led or contracted by City Departments, including Ottawa Police Services.  The remainder (approximately 30%) are led by external agencies such as the Canadian Automobile Association (CAA), the Children’s Hospital of Eastern Ontario (CHEO), the Ontario Provincial Police (OPP), Mothers Against Drunk Driving (MADD), etc. 

 

All initiatives have two things in common: 

 

In isolation of each other, engineering, education or enforcement initiatives (3E’s) have limited success in addressing systemic road user practices and behaviors.  For example, implementing an engineering road safety initiative such as enhanced traffic signal displays will achieve desired results in locations where they are installed, but undesired road user practices and behaviours in surrounding areas will continue without the assistance of enforcement and education.  When resources are coordinated, higher levels of commitment and awareness to road safety challenges can be achieved. 

Notwithstanding the number of successful programs in existence, the incidence of death, serious injury and disability resulting from collisions on Ottawa’s roadways continue to be too high.  The aim of an Integrated Road Safety Program would be to coordinate and maximize the scope and scale of existing programs and relationships.  This would be achieved by:

 

The recommendations of this report will be carried out through the implementation of new coordination efforts and a series of action-focused initiatives.  They include:

  1. An integrated program team and organization structure;
  2. A highly focused action plan; and,
  3. The implementation of a “3E” road safety program.

 

1.  An Integrated Program Team and Organization Structure

 

A team of Transportation, Utilities and Public Works, Police Services and People Services representatives, all with a public health/safety mandate, will lead the administration of the Integrated Road Safety Program.

 

Among the administrative responsibilities will be the collection of road-related data and statistics.  This information will be used to shape initiatives and make adjustments to the Program as required.

 

In the future, the Program will expand to rely on the support of Emergency and Protective Services (fire and ambulance), when road safety initiatives that are specific to emergency services are selected.  Because Emergency and Protective Services is responsible for on-site treatment of injuries and transporting patients to medical treatment centers, lives may be saved and severity of injury reduced as response times improve.  This can be achieved through improved education of the driving public on their duties and responsibilities when it comes to reacting to the presence of emergency vehicles in emergency situations.  The reduction of traffic collisions will also free up emergency staff resources that, in turn, will also improve response times.

 

An outline of the Integrated Road Safety Program’s organizational structure is attached as Annex A.  It illustrates the various groups that comprise the Program organizational structure and highlights their relationships.

 

Included in the resources in the Integrated Road Safety Program is a full-time Road Safety Coordinator.  Among other things, the Road Safety Coordinator would serve as the focal point for the Program, ensuring the mission and vision are clearly understood and woven throughout the road safety network.  The Coordinator would assist the Core Operations Group to prioritize, allocate and optimize resources (people, infrastructure, funds and information) acquired from the participating departments as well as manage and coordinate the delivery and implementation of all initiatives.

 

2.  A Highly Focused Action Plan

 

Knowing that deaths and injuries on our roads are preventable, it is critical that an action plan begin immediately and that it shows short-term, measurable results.  These results can be best achieved by taking a holistic approach to road safety improvements and developing an action plan that includes: 


 

 

2.1  Coordinating, Branding and Enhancing Existing Road Safety Initiatives

 

The approximately 70 individual road safety-related initiatives carried out annually in Ottawa lack an overall road safety vision and direction. 

 

A coordinated approach to the delivery of the City’s initiatives will help meet the serious challenge to make roadways safer.  The Integrated Road Safety Program will maximize the timing and efforts of the existing road safety community partner initiatives and work to improve the collaboration between the City Departments undertaking road safety initiatives, as well as between the City and external partners.

 

This collaborative approach will also better facilitate:

 

 

Engaging and sustaining the support of community road safety partners will be a priority throughout the life of the Program.  In 2003, for example, a community stakeholder forum is being planned to strengthen dialogue with existing and potential partners.  Special stakeholder forums may also be conducted to solicit input and participation from specific population segments such as the rural community or newly arrived immigrants.

 

Existing and future City-led and City-sponsored road safety initiatives will be “branded”, meaning printed materials and broadcast spots will have a Program logo and identity.  This will:

 

2.2  Delivering Programs in Specific Emphasis Areas

 

Following an appropriate period of awareness building, the first initiative of the Integrated Road Safety Program will be launched in the latter part of 2003.  This initiative will target young drivers between the ages of 16-24.  It will build awareness of the risks young drivers face and show how these risks can be reduced.  For example, research has shown that driving after midnight, seat-belt use, number of passengers, intoxicants, fatigue, distractions, risk-taking behaviours and inexperience are all factors contributing to their collisions.  All these risks can be avoided or minimized.

 

Selecting young drivers as the Program’s first emphasis area achieves the following objectives:

 

The selection of emphasis areas in 2004 and beyond will depend on priority road safety concerns as well as road safety data that supports a focus on topical issues.  Input from community road safety partners, City Advisory Committee representatives and associated road safety agencies will also assist with the selection process.  Sample surveys will be conducted to determine how the public perceives road safety and what the public knows of road safety issues. 

 

In its second year, in 2004, it is proposed that the Program expand from one emphasis area to three.  Included in the development and delivery of the three emphasis areas, as with all emphasis areas, is the requirement to conduct research, communication and marketing initiatives so that target audiences receive effective messages.  More detail about the selection of emphasis areas and resource requirements will be outlined in a follow up report to Transportation and Transit Committee this year.

 

2.3  Implementing a Strong and Informative Awareness Program

 

The roll-out of the Integrated Road Safety Program in 2003 will be supported by an awareness-building program.  Improving road safety requires the public to be aware of, sensitive to, and reminded of the all-encompassing importance of road safety.  Consistent messages must be communicated in a centralized, coordinated fashion.  They must support stakeholder initiatives and encourage interactivity with the public (face-to-face; via the Web, etc.).  They will respect cultural diversity.  And measurements of this targeted messaging will be gathered and analysed.

 

3.  The Implementation of a “3E” Road Safety Program

 

The City of Ottawa’s Integrated Road Safety Program will be implemented through a conventional “3E” approach to road safety where the 3 “E’s” represent Engineering, Enforcement, and Education.  The Integrated Road Safety Program will help to better integrate the 3E’s in the delivery of these programs, thereby increasing their effectiveness and impact.

 

3.1  Engineering

 

The Transportation, Utilities and Public Works (TUPW) Department is primarily responsible for the engineering component of traffic safety.  Over the years, TUPW’s role has evolved to include a greater role in public education relating to safety.

 

The safe operation of the road system is a priority in the design, construction and maintenance of roads.  It is managed through the application of traffic control devices such as intersection controls, regulatory and information signs, as well as pavement markings. 

 

The relative safety of a particular location can be measured against other locations through the use of collision data collected and maintained by TUPW.

 

TUPW currently administers many programs to achieve and improve road safety.  These are outlined in Annex B.

 

3.2  Enforcement

 

The Ottawa Police Service is responsible for traffic enforcement in the City of Ottawa except on provincial highways and federal roadways where the Ontario Provincial Police and RCMP enforce traffic regulations respectively.  Traffic enforcement includes:  impaired driving, high-risk driving (i.e. red light running, aggressive driving, stop sign violations, speeding, etc.), vehicle restraints and traffic regulations relating to school bus safety.

 

Residents of the City of Ottawa are concerned about road safety.  They state clearly in a 2002 poll that they want the Ottawa Police Service to give priority treatment to speeding and aggressive driving.  This, combined with the upward trend in collision statistics, has led the Mayor to request that the Ottawa Police Chief and Chair of the Ottawa Police Services Board identify enforcement strategies that will improve road safety.

 

The Ottawa Police Service also administers many initiatives to improve road safety.  See Annex B for detail.

 

3.3  Education

 

The People Services Department is responsible for overall public health and engages in many injury prevention initiatives of which road safety is a component.  Although TUPW and Police Services engage in some road safety education, both the Public Health and Long Term Care and Community Services Branches of the People Services Department focus heavily on the development and tailoring of public education, awareness and prevention programs to specific communities and target populations in collaboration with partners.

 

The Public Health and Long Term Care and Community Services Branches have a mandate from the Ministry of Health and Long-Term Care of Ontario to reduce road-related morbidity and mortality through education, partnership and the creation of safer environments.  This includes increasing the proper use of restraints and protective gear (helmets), as well as increasing sober driving.  See Annex B for examples.

 

 

SUMMARY

 

Based on the 3 “E’s” model outlined in the report, staff will prepare a draft program for 2004 and will report back to the Transportation and Transit Committee for approval by the end of the year.

 

 

ENVIRONMENTAL IMPLICATIONS

 

Increasing the safety of vulnerable road users (pedestrians and cyclists) will result in increased use of alternative transportation modes and result in a friendlier, cleaner environment.

 

RURAL IMPLICATIONS

 

As the Integrated Road Safety Program is a City-wide initiative, the benefits of reduced motor vehicle traffic and traffic collisions, as well as resulting road-related injuries, disabilities and deaths, will be realized across Ottawa.  As rural road safety issues are serious and in some cases different from urban issues, particular emphasis areas may determine that campaigns must be tailored to specific circumstances.  Therefore, in some cases, specific campaigns may only apply to rural situations.

 

 

CONSULTATION

 

The Integrated Road Safety Program will foster partnerships with relevant road safety community partners and stakeholders.  These partnerships will help to ensure grassroots participation in the development of the emphasis areas, and that messages to target audiences are the product of collaboration.  Planned stakeholder meetings will provide the means for community road safety partners and City’s Advisory Committee representatives to participate in the Program.

 

The Program’s website will also provide an opportunity for input from the public.

 

 

FINANCIAL IMPLICATIONS

 

The Budgets of the Transportation, Utilities and Public Works Department, Public Health and Long Term Care Branch, People Services Department and Ottawa Police Service included sufficient funding to initiate the Integrated Road Safety Program in 2003.  A separate report outlining requirements for 2004 will be prepared for the consideration of the Transportation and Transit Committee by the end of the year. 

 

 

DISPOSITION

 

Upon approval, the Program as outlined in the report will be implemented.

 

 
ATTACHMENTS

 

ANNEX A - Program Organizational Structure

ANNEX B - Existing Programs To Improve Road Safety


 

ANNEX A

Program Organizational Structure

 

ANNEX B

Existing Programs To Improve Road Safety

 

Engineering

 

The Transportation, Utilities and Public Works Department is responsible for the delivery of a number of programs to improve safety and security.  Aside from the first program described below which is a pilot program initiated this year, the following is a selection of established on-going programs TUPW delivers and includes examples of successes:

 

1.      The Kiss & Ride Program:  This new initiative was launched in May 2003.  The Kiss & Ride Program is part of the School Zone Traffic Safety Program.  Initially, three schools are participating, with more schools expected to join in the upcoming school year.

 

2.      The School Zone Traffic Safety Outreach Program:  Also part of the School Zone Traffic Safety Program, the School Zone Traffic Safety Outreach Program has educated more than 20,000 children during the 2002-2003 school year on a number of topics including how to cross streets safely.

 

3.      The Safety Village:  A further example of the School Zone Traffic Safety Program, the Safety Village (a safety initiative for children in a highly interactive environment), is administered and delivered by the Ottawa Safety Council, a community road safety partner, and is funded by the City of Ottawa.  Approximately 9,000 children were introduced to “The Rules of the Road” at the Safety Village during the 2002-2003 school year.

 

4.      The Traffic Control and Pedestrian Signal Control Program:  It is anticipated that 14 new traffic control signals will be installed in 2003, three of which will be pedestrian signals and all of which will be equipped with audible technology.

 

5.      The Audible Pedestrian Signals Program:  It is anticipated that 10-12 new audible signals will be added to existing traffic control signals this year.

 

Other on-going programs include:

 

 

 

Enforcement

 

As part of the Ottawa Police Service commitment to providing a safe and secure road system, an on-going strategy to provide highly visible selective traffic enforcement is used.  Examples of such initiatives include enforcement of:

 

·             Speeding

·             Aggressive driving

·             Impaired driving

·             Vehicle restraints

·             School bus safety

·             Vehicle safety standards

·             Red light/stop sign running

 

In addition, the Ottawa Police Service delivers, or provides on-going support for, numerous road safety programs in collaboration with City Departments and other community stakeholders such as:

 

·             Driver and Rider Training

·             Alcohol Countermeasures Program

·             Rail Crossing Safety Assessment Program

·             Corporate RIDE Program

·             Adult School Crossing Guard Program

 
Education

 

The Public Health and Long Term Care and Community Services Branches of the People Services Department focus on the development and implementation of education and injury prevention programs in collaboration with coalitions and community partners.  The following are examples of such on-going programs and highlight 2002 successes:

 

1. Child Car Seats:  In 2002, public health nurses and firefighters collaborated to hold community car seat clinics in which over 3,000 child car seats were checked (many were incorrectly installed).  It is estimated that correctly used; child car seats can reduce deaths by 90%.

 

2. Smart Graduations:  In 2002, the Family Health Program “Smart Grad” initiative (health, police and community partners working with student graduation planners to educate teens and their parents about social host liability and the consequences of impairment) reached more than 8,000 graduation students in 42 high schools.

 

3. Impaired Driving:  Assisted by Family Health Program staff, and seven community partner agencies, more than 70% of local high schools now support an OSAID (Ontario Students Against Impaired Driving) Chapter in their school.  In 2002, this grassroots student group reached more than 20,000 students with their “Friends Don’t Let Friends Drink & Drive” message.

 

4. Bicycle Safety:  Bicycle helmets reduce the risk of head injuries by 89%.  In 2002, Family Health, Recreation, Police and community agency staff trained more than 200 adults and students to correctly fit a helmet on their peers in schools.  More than 800 grade school students participated in a helmet check.

 

5. Strategies to prevent alcohol related injuries:  In 2002, safer drinking environments on the university and college campuses were created by training more than 200 student leaders on safe celebrations and how to promote low risk drinking guidelines.  In development is a designated driver program in Ottawa that will be appealing to the hospitality industry.

 

Other on-going programs include:

 

·        Corporate RIDE Program

·        Operation Lookout

·        Designated Driver Project

·        55 Alive for senior rural drivers

·        Love Me Buckle Me Right

·        Municipal Alcohol Policy training for retail staff

·        Development of English as a Second Language materials to teach car seat and seat belt safety to newly arrived immigrants.