ROAD SAFETY STRATEGY TO REDUCE ROAD TRAUMA IN WESTERN AUSTRALIA 2008-2020 - GETTING THERE TOGETHER - ROAD SAFETY COMMISSION
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Road Safety Strategy To Reduce Road Trauma in Western Australia 2008-2020 Towards Zero – Road safety Strategy towards zero officially endorsed by government – march 2009 getting there together
Table of Contents Road Safety – a long term plan for WA 3 The Vision Towards Zero – getting there together 9 Strategy Background 11 Strategy Cornerstones 27 A final word from the Road Safety Council 47 References 48 appendix one 49
Road Safety
– A long‑term plan for WA
Our Minister discusses the future for road safety
“Much is asked of Western Australia in this new road safety strategy. The work ahead is
demanding and requires community and political support. I am asking you all to join me in
confronting the great challenges before us. Towards Zero is an ambitious target but it’s
expected outcomes are achievable if we work together.”
Hon Min Rob Johnson MLA, Minister for Road Safety
We must look at road safety in a new way, because our state has both geographical and community challenges. The
evidence shows us that while lives are being saved in the metropolitan area, about two-thirds of our road deaths
consistently occur in our regional and remote areas.
There is also the major challenge of serious injuries – two thirds of these happen in our urban areas. For every one death there
are about 15 serious injuries, many of which alter lives forever and place a huge burden on public health and the community.
Towards Zero considers the different needs of metropolitan, regional and remote road users.
Importantly it is built on the globally-recognised Safe System approach that benefits all road users by identifying strategies
for: safe road use; safe roads and roadsides; safe speeds; and safe vehicles.
Towards Zero will help all of us to recognise that road deaths and injuries can be prevented if we make the conscious
decision to give road safety the priority it deserves. This government is committed to improving road safety. We can move
forward in confidence because we trust the evidence and the community consultation process used to develop this plan.
The safety of Western Australians depends on us sharing responsibility and implementing the initiatives in Towards Zero
together. We will continue to reduce risk-taking behaviour through education and enforcement but also protect road users
when they make mistakes by creating a more forgiving road transport system. The benefits won’t happen overnight, which
is why we have developed a 12-year strategy to create the systemic and sustainable changes needed to make our roads
safer. Every day Western Australians set themselves challenging and ambitious goals. As citizens, we deserve the safest
road transport system in the world. Towards Zero will take time, but ultimately it will help us deliver that system
Statements of Support
“Thousands of us have contributed to create a world “Death and injury on our roads does not discriminate
class, uniquely Western Australian road safety strategy. – it can shatter the lives of anyone, at anytime. This
No single person, agency or Minister can deliver this is why for the first time a bi-partisan approach was
strategy alone. With the help of our community, members used in the development of this strategy. This inclusive
of Parliament and all key stakeholders, we are ready to approach recognised that informed leaders such as
implement a long term plan that will benefit us all.” politicians from differing parties are vital in progressing
road safety initiatives.”
Grant Dorrington BEM
Road Safety Council Eric Howard
Independent Chair Parliamentary Reference Group
Independent Chair
3
Legislative Assembly
Thursday, 19 March 2009
Hansard Excerpt1
TOWARDS ZERO STRATEGY
Statement by Minister for Road Safety
MR R.F. JOHNSON (Hillarys — Minister for Road Can we do more to prevent similar crashes in the future? The
Safety) [10:39 am] — by leave: Today, my fellow members of answer is yes. The challenge is to identify the solutions and
Parliament, is a pivotal moment in our history—one that will progressively apply them with the knowledge and resources
mark the point at which we redefined the way we approach available. There are various factors at play in crashes,
road safety in our state. Today is the day we create a lasting including roads and roadsides, speed, road-user behaviour and
legacy for future generations… types of vehicles. We need to look at what we can realistically
put in place and then ensure that for every dollar we spend,
…Every year, about 3,000 crashes in our state result in either
we prevent as many deaths and injuries as we can…
death or serious injury. Today I ask members to take the moral
high ground. I ask members to refuse to accept that death …Road safety is something about which we all have an
and serious injury are an inevitable result of using our road opinion, but I am asking all members who make up this
system; they are certainly not acceptable consequences… Parliament to put their differences aside and unite behind this
major long term road safety strategy. Realistically, we know
…Towards Zero recognises that although crashes will always
that we cannot achieve zero deaths and injuries by 2020, but
occur, no-one needs to die as a result of a crash. Today we
we can and must strive to achieve that noble goal. I further
should be proud that many people in this chamber and many
ask my fellow parliamentarians to show leadership and to
more people across our community have helped create a road
take ownership for road safety; whether directly or indirectly,
safety strategy that will change the way we need to think and
we all share responsibility for road safety in this state…
act. This strategy challenges our standards and practices; it
holds a vision for an inherently safe road system for our future … we should never just stand back and assume that it is
generations… business as usual. We have zero tolerance for road trauma in
this state. We will take responsibility and action, jointly and
…Today I ask that all members support this vision, as it will
individually, to improve road safety; this is a core principle of
be achieved only with the support and action of the entire
Towards Zero.
community. The Government will continue to deal firmly
with those who defy or blatantly ignore our road rules, and … Road death and injury in WA place a huge burden on our
who deliberately take risks on our roads, endangering the health system, community and the fabric of our society. Our
lives of all road users… Beyond these initial steps, we must road safety strategy should not discriminate either – it goes
encourage and support our engineers, planners and designers beyond political persuasions. Mr and Mrs Bromfield were not
and challenge them to design and build roads beyond our just statistics or numbers. They were real people doing everyday
current Australian standards… our community wants, and things – like driving on the freeway. They are missed by their
deserves, a forgiving road system. loved ones, their colleagues and their friends. The fact that they
were killed on a Western Australian road in a crash in which
Let me give members an example. At about 7:40 pm on
their deaths could have been avoided is not good enough.
Sunday, 19 August 2007, Mr and Mrs Bromfield were driving
north along Mitchell Freeway in their Kia. They had just I appeal to all members: do not accept that death and serious
passed the Karrinyup Road exit when a Ford Falcon bumped injury on our roads is inevitable. Challenge the standards.
their car, causing the Bromfields to swerve into the path of a Be bold. Aspire for zero. It is a long journey and by sharing
Holden utility. The Bromfield’s car hit the ute, left the freeway responsibility and working together, Towards Zero will set
and crashed into a tree. The ute then overcorrected, spun out us on the path to achieve this ultimate aspiration. Mr and Mrs
of control and also left the freeway, hitting the Bromfield’s Bromfield’s deaths were not inevitable, but neither will they be
car, which had already hit the tree. The Bromfields were both in vain, because within this strategy we have the potential to
killed that day; the driver of the Ford Falcon was not hurt. The save many lives.
driver and passenger of the ute sustained serious, but not life-
Together we will aspire to and commence the journey
threatening, injuries. The deaths of Mr and Mrs Bromfield was
Towards Zero for our community and for our future
a tragedy that should not have happened – a tragedy that is
generations.
repeated about 3,000 times a year on our roads in crashes that
result in serious injury or death.
4
Signed
by all members of the Ministerial Council for Road Safety (as at March 2009)
Hon Rob Johnson JP MLA Hon Kim Hames MB BS JP MLA Hon Dr Elizabeth Constable MA
Minister for Police, Minister for Health DipEd MEd PhD MLA
Emergency Services, Minister for Education
Road Safety (Chair)
Hon Simon O’Brien MLC Hon John Day BSc BDSc MLA Hon John Castrilli MLA
Minister for Transport Minister for Planning Minister for Local Government
Hon Brendon Grylls MLA
Minister for Regional
Development
5
Signed
by all Road Safety Council Members at March 2009
Rose Moroz Dr Andrew Robertson Vic Evans
Director Schools Director, Disaster Management, Managing Director
DEPARTMENT OF Regulation and Planning INSURANCE COMMISSION
EDUCATION AND TRAINING DEPARTMENT OF HEALTH OF WESTERN AUSTRALIA
Des Snook Trevor Maughan Iain Cameron
Executive Director, Director, Strategy and National Executive Director,
Road Network Services Reform Office of Road Safety
MAIN ROADS WESTERN AUSTRALIA DEPARTMENT FOR PLANNING DEPARTMENT OF THE
AND INFRASTRUCTURE PREMIER AND CABINET
Michael Heath Stephen Brown APM Mayor Troy Pickard
General Manager Assistant Commissioner Deputy President
Membership and Retail, RAC WESTERN AUSTRALIA POLICE WESTERN AUSTRALIAN LOCAL
ROAD USER REPRESENTATIVE GOVERNMENT ASSOCIATION
6
Strategy Summary
Why this strategy has been developed How the strategy was developed
The previous road safety strategy for Western Australia, Towards Zero was developed with more consultation
Arriving Safely, covered the period from 2003 to 2007. than used in previous strategies. For this strategy to
This strategy Towards Zero: Getting there together succeed, we needed to understand the community’s views
2008-2020 will build on the progress achieved under Arriving on road safety. This has ensured the community has a
Safely and address the lessons we have learnt. deeper understanding of what is achievable, and that
shared responsibility and ownership of the strategy have
All the evidence demonstrates a longer-term strategy
been encouraged from the start.
implemented through a series of short-term action
plans will be much more effective in achieving dramatic
The strategy is anchored in evidence-based research
reductions in death and serious injury on our roads.
conducted by the Monash University Accident Research
Towards Zero will cover 12 years to ensure that, as well Centre (MUARC). In particular, the research focused on
as putting in place immediate measures to help save lives WA’s unique road environments. This means metropolitan,
and reduce serious injuries, we also implement initiatives regional and remote areas were considered individually.
(such as improvements to infrastructure) that require more
extensive planning and development.
Kununurra
Derby
Broome Gre
at N Fitzroy Crossing
orth
ern
Hwy Halls Creek
Dampier Wickham
Port Hedland
Karratha
Exmouth
Tom Price
Two Rocks
Coral Bay Parabardoo Yanchep
Newman
East Bullsbrook
The Vines
Ellenbrook
Carnarvon
Stoneville Mount Helena
Parkervi le
Mundaring
North W
Denham Perth
Goldfields Hwy
est Coas
tal Hw
Kwinana
Great Norther
0 20
Ka barri
y
Leinster Rockingham
Kilometres
n Hwy
Geraldton Leonora
Dongara
Jurien
Moora
Kalgoorlie Boulder
Coolgardie
y Kambalda West
stern Hw
Great Ea
Merredin
Eyre Hwy
Norseman
Narrogin
Wagin
Katanning Esperance Remote
Margaret River Kojonup Regional
Bridgetown
Augusta
Manjimup Metro
Mount Barker 0 400
Denmark Albany
K lometres
Figure 1: Metropolitan, Regional and Remote areas as defined by the Accessibility/Remoteness Index of Australia
(ABS, 2007)1
1 We used the Australian Bureau of Statistic’s ARIA (Accessibility/Remoteness Index of Australia) index to determine which areas of the state fell into each
category. The ARIA index is derived from measures of road distance between populated localities and service centres. These road distance measures are then
used to generate a remoteness score for any location in Australia.
7
We knew that we had to take a longer term view of road Strategy BENEFITS
safety. We looked at immediate, short‑term measures and
longer-term initiatives that require substantial planning
and preparation.
)
As well as consulting with
Safe the community, we reached
Veh cles Safe Road Use
)
out to key stakeholders – special interest groups; other Safe Vehicles 2,200 KSI (20%)
2,900 KSI (26%)
government agencies; local government; and business afe Roa
and industry leaders. In addition, we consulted2 500with
KSIa
bi-partisan Parliamentary Reference Group to ensure Safe Roads
our political leaders were involved every step of the and Roadsides
2,700 KSI (25%)
way. All this was essential to7 encourage Safe Speeds
700 KSI (50% and promote
3,200 KSI (29%)
the importance of ‘shared responsibility’ for owning and
implementing the strategy. (An overview of the strategy
development process can be found at Appendix 1.)
Towards Zero Strategy2
Strategy recommendations
nju ed 200 2 20 URAC es poss s ra eg ( S O Figure 2: Projected cumulative savings in numbers killed
Towards Zero incorporates the Safe System, which aims
and seriously injured 2008-2020 Towards Zero strategy.
to improve road safety through four cornerstones: Safe
Road Use; Safe Roads and Roadsides; Safe Speeds; and
Safe Vehicles. OTHER benefits
If all cornerstones of the Towards Zero strategy are Ultimately Towards Zero will help reduce the impact of
fully implemented we have the potential to save 11,000 road trauma on all our lives, ensuring a healthier lifestyle
people from being killed or seriously injured between for all Western Australians.
2008 and 2020. That is a reduction of around 40 percent The strategy highlights opportunities for improvements
on present day levels. in road safety to contribute to other areas of public policy
and community interest. It will help:
The key initiatives under the four Safe System • enhance the quality of life and wellbeing of all people
cornerstones are: throughout Western Australia by providing high
quality, accessible services;
• Safe Road Use – integrating behaviour change
• reduce the number of hospital admissions and health
programs with improved enforcement to make them
resources used;
more powerful and addressing impaired driving
• encourage low environmental impact alternatives to
(alcohol, drugs, fatigue and distraction), restraint use,
car use which will reduce energy consumption and
graduated licensing and speed choice.
slow climate change;
• Safe Roads and Roadsides – investing in Safe System
• encourage more active lifestyles;
infrastructure improvements.
• improve public amenity; and
• Safe Speeds – enhancing speed enforcement and
• create safer local neighbourhoods.
further reflecting on the appropriateness of WA’s
speed limits.
• Safe Vehicles – promoting the uptake of safer vehicles
and key safety features, particularly by government
and corporate fleets.
In addition, the four cornerstones are anchored in a series
of supporting initiatives (such as data collection, research,
monitoring and reporting) that will help us to implement
the countermeasures recommended by evidence. We
refer to these supporting initiatives as the Safe System
Foundations.
2 Refer to page 15 for further details of the ‘Optimal Safe System Option’.
8
The Vision
Towards Zero - getting there together
Our long-term vision is of a road transport system where crashes
resulting in death or serious injury are virtually eliminated.
Towards Zero means we do not accept that any human This would have a major impact on the level of pain and
being should die or be seriously injured on our roads. suffering endured by the community and the resources
Realistically we understand it is not practical to achieve used by our health system to treat the victims of road
zero serious injuries on our roads by the year 2020, but we trauma. MUARC estimates the financial cost of that level
do not accept any death or serious injury as inevitable. of road trauma would be around $6.6 billion, of which
over $5 billion dollars would be due to serious injuries3.
This vision can be achieved if the community as a whole
The cost savings to WA’s health services, business and
makes a fundamental change in the way it thinks about
community would be enormous.
road safety and what it is prepared to accept.
The average financial cost of a single death
Our Target by 2020 or serious injury is $600,0004. Of course, it is
11,000 fewer people killed or impossible to measure the emotional cost of
seriously injured. road trauma to families and loved ones.
If the Towards Zero strategy is fully implemented we
could see up to 11,000 fewer people killed or seriously
injured on Western Australian roads between 2008 and
2020, a reduction of up to 40 per cent on the average
number of people killed and seriously injured each year
between 2005 and 2007.
12,000
Estimated cumulative savings in the number of people
10,000
killed and seriously injured 2008-2020
8,000
6,000
4,000
2,000
0
2008
2009
2010
2011
2012
2013
2014
2015
2016
2017
2018
2019
2020
Figure 3: Strategy Milestone Performance (MUARC, unpublished)
In the next 12 years we will take substantial steps forward in road safety to reduce the number of people
killed and seriously injured on Western Australian roads.
3 It has been assumed that 6.85% of the 11,000 deaths and serious injuries estimated to be saved are deaths.
4 MUARC, unpublished (in 2008 dollars).
9The aspiration of Towards Zero means…
Towards Zero applies a long-term, ultimate level of • leaving a legacy of a sustainable, inherently safe road
aspiration for the implementation of the Safe System system for the next generation. A positive legacy that
to Western Australia. It takes into consideration our does not act as a burden for our children but instead
unique road infrastructure and specific priority areas. It delivers the optimal solution to save lives and prevent
is recognised that it is probably not possible to prevent serious injuries;
all crashes. However, by taking a total view of the
• considering any initiatives that have evidence to
combined factors involved in road safety, Towards Zero
support their effectiveness in striving for zero road
aims to design and build a transport system that, in the
deaths and serious injuries in the longer-term.
longer‑term, will protect road users and prevent crashes
However, we expect our governments, current and
that result in death and serious injury.
future, and the organisations primarily responsible for
To aspire Towards Zero also means: road safety, will prioritise those initiatives that have
been proven to deliver the greatest gains in terms
• knowing humans make errors (and take risks) and
of reducing death and serious injury. This will make
that there is a critical physical limit to the amount of
optimal use of scarce resources; and
energy our bodies can absorb, beyond which survival
and recovery from an injury are not possible; • encouraging individuals, groups and organisations that
choose to support and pursue road safety initiatives.
• applying a Safe System approach that views the road
Government and its agencies may assist these
transport system holistically by seeking to manage
activities from time to time (for example, by sharing
the interaction between the road user, the road, travel
expertise and funding pilot programs).
speed, and the vehicle;
• continuing to deal with risk-taking but increasingly
catering for the mistakes people make. This approach
must be taken if substantial gains in road safety are to
continue in the future.
10Strategy Background
Introduction
This section provides important background information on the approach
taken to develop the strategy, our progress in road safety to date, the
problem and priority areas for WA, and how the Safe System works.
The Approach
We developed a longer-term strategy to help realise the Community engagement has now evolved into an ongoing
ambitious goals we all aspire to achieve. Here’s how we relationship. The community owns the strategy as much as
went about it. the Government. The continued support and involvement
of the community is essential for effective implementation
Take the longer view – developing a 12 year strategy
and ambitious gains.
We know there are some immediate measures we can
put in place to reduce the number of deaths and serious Partner with key stakeholders
injuries in the short-term. These are typically enforcement Consultation with key stakeholders across multiple
activities supported by education. But we also need to government agencies, special interest groups and industry
look at those initiatives that require substantial planning and political leaders was an intrinsic part of the strategy’s
and preparation like improvements to roads and roadsides, development process. These partnerships will continue to
and enhancing the safety of vehicles. These types of develop as the strategy is implemented.
initiatives will have a larger and more sustainable impact
Encourage a shared implementation
on the number of lives and injuries saved over the life
To implement this strategy effectively we need absolute
of the strategy. This strategy spans 12 years to take a
clarity about the practical measures we will take and at
longer-term look at the issue of road safety, providing the
what point these will be put in place over the next 12
greatest opportunities to reduce road trauma.
years. To do this, we will use detailed three-year action
Look at the research plans. These will identify priority programs, allowing us
This strategy is anchored in evidence-based research to evaluate progress and to consider emerging research
that tells us what works and what is best to meet WA’s and developments. The action plans will provide clear
unique challenges. MUARC – Australia’s largest injury direction on who will do what, where and when. Clear
prevention specialist, provided much of the research. commitment and accountability are pivotal to the success
MUARC is recognised as a world leader in safety of this strategy.
research and promotion. It also has a track record in
developing successful road safety strategies in Australia. METHODOLOGY
We will continue to take advantage of new road safety MUARC assessed the road safety benefits possible from
developments and research throughout the life of the alternative initiatives using a computer-based model
strategy. It is a living strategy informed by evidence to focus it developed specifically for this purpose. The model
our efforts on those initiatives that will deliver the most estimates and compares the total number of deaths and
lives and serious injuries saved for every dollar spent. serious injuries that are likely to be saved over the life
of the strategy from implementing individual road safety
Build relationships with the community
initiatives.
Our community was invited to be involved right from
These estimates, which were based on the best available
the start of the strategy process, helping to form the
scientific evidence on initiative effectiveness, were then
recommendations to Government. A range of consultation
combined using advanced mathematical methods to
opportunities were made available such as surveys and
forecast the total savings in serious casualties possible
community forums (held in over 40 locations right around
over Towards Zero’s 12 year life.
Western Australia – refer Appendix 1).
11WA will change over the next 12 years
Forecasting 12 years into the future is a challenging task,
with high levels of uncertainty and the need to make
assumptions about the nature of the road transport system
into the future. Road safety outcomes in WA will be
affected by many factors including the:
• number of vehicle kilometres travelled in WA;
• level of economic activity (WA’s rate of economic
growth will continue to affect road safety
performance);
• composition of the WA vehicle fleet;
• socio-demographic profile of the WA population (along
with Queensland, Western Australia has Australia’s
youngest overall population and the highest proportion
of young drivers coming into the road transport system);
• overall level of alcohol consumption per capita;
• growth in the road freight task; and
• advances in technology.
12Our Progress in Road Safety
We have reduced death, and maintained serious injury numbers on our roads (despite substantial population increases).
Figure 4 shows the progress we have made in road safety over the past three decades. Broadly, we have halved the number
of deaths while our population has nearly doubled. Figure 5 highlights the target line of improvements for the next 12 years.
3,500
2,800
Number of people killed and seriously injured
2,100
Random
Breath
Testing ANCAP
‘P’ Platers Road
BAC>0.02% Safety Council 50 km/h
1,400
Speed
Cameras
Black Spot
700 Double
Demerits
0
1980
1981
1982
1983
1984
1985
1986
1987
1988
1989
1990
1991
1992
1993
1994
1995
1996
1997
1998
1999
2000
2001
2002
2003
2004
2005
2006
2007
Figure 4: The number of people killed and seriously injured in WA
over the past 30 years and key road safety initiatives (RSC, 2007a)
3,500
TOWARDS ZERO
2,800
Number of people killed and seriously injured
2,100
1,400
700
0
2008
2009
2010
2011
2012
2013
2014
2015
2016
2017
2018
2019
2020
Figure 5: Projection of the reduction in the number of people
killed or seriously injured annually (if Towards Zero is fully implemented) 2008-2020
13Still, our performance relative to other Australian jurisdictions has recently dropped. Figure 6 compares Western Australia
to other Australian jurisdictions and a range of OECD nations in 2006. Compared to those places, WA as a whole is an
average performer in terms of ‘deaths/100,000 population’.5
Figure 6: WA in comparison to other jurisdictions (based on 2006 data)
(Australian data from ABS, 2008. International data from IRTAD, 2008)
While we have made progress, the community expects more and does not accept the current level of death and injury.
This strategy aims to deliver further substantial improvements.
5 Metropolitan and regional WA results are shown to demonstrate the significant difference in results but should not be directly compared with overall results of
other nations. Metropolitan and regional breakdowns for the other jurisdictions are not available. It is likely that regional areas in other jurisdictions also perform
more poorly than their metropolitan areas and the nations as a whole.
14Our Potential
Based on research into the most effective solutions to WA’s road safety crash problems, MUARC presented the Optimal
Safe System Option (OSSO) which estimates a potential 15,3006 lives and serious injuries could be saved over the 12 year
life of the strategy (MUARC, 2008).
However feedback on the OSSO told us the community had diverse views on speed limit reduction. While the evidence
showed us that by reducing speed limits we can achieve immediate reductions in trauma at a very low cost, we know the
community is not ready to adopt that MUARC recommendation. As a result we asked MUARC to adjust its estimate for
Towards Zero to reflect the impact of not including speed limit reductions in the strategy. The best we can now expect to
save is 11,000 lives and serious injuries.
16,000
OSSO
Estimated cumulative savings in the number of people
TOWARDS ZERO
14,000
killed and seriously injured 2008-2020
12,000
10,000
8,000
6,000
4,000
2,000
0
2008
2009
2010
2011
2012
2013
2014
2015
2016
2017
2018
2019
2020
Figure 7: Cumulative deaths and serious injures expected to be saved by MUARC’s recommended strategy
(OSSO) in comparison to Towards Zero (MUARC, unpublished)
6 This figure has been revised down from the estimated 16,300 documented in the Towards Zero Discussion Paper (RSC, 2007a) based on MUARC’s revised
estimates on the expected benefits of infrastructure improvements.
15Western Australia’s Road Safety Problem Areas
We have collected and analysed data on fatal and serious injury road crashes for many years so we now have a vast
amount of WA specific research and evidence to draw on. This gives us the opportunity to pin-point our problem areas and
develop strategies that relate specifically to the unique needs of the metropolitan, regional and remote areas of WA.
Priorities for WA
By understanding how and why crashes occur, who is at greatest risk and what strategies have been proven to be the most
effective, we have identified clear priorities for WA, which must be addressed by Towards Zero.
On this basis, the categories in Table 1 were identified by MUARC from an analysis of WA’s reported traffic crashes between
2005 and 2007. They are listed in broad groupings, in decreasing order of priority based on their estimated contribution
to the number of deaths and serious injuries. For some problems, such as distraction and fatigue, reliable figures are not
currently available. In some instances, the problem size may be relatively small, but the associated risks high.
Metropolitan Rural Remote WA
High Priority Category
n %# n % #
n %# n %#
Intersections 1,855 44% 1,006 29% 102 7% 2,963 33%
Run-off-road 774 18% 1,349 39% 860 62% 2,983 33%
Head-on1 141 3% 289 8% 67 5% 497 5%
Other crash types 1,444 34% 810 23% 357 26% 2,611 29%
Speed2 582 34% 556 32% 316 40% 1,454 34%
Fatigue3,4 na na na na na na 1,811-2,716 20-30%
Distraction4,5 na na na na na na 2,897 32%
Drug driving6 na na na na na na 42 21%
Drink driving7 418 10% 350 10% 228 16% 996 11%
Non-restraint use8 122 5% 202 8% 280 26% 604 10%
Young drivers9 768 29% 680 29% 203 27% 1,651 29%
Indigenous drivers3, 4,10 na na na na na na 814 9%
Motorcyclists 516 12% 440 13% 107 8% 1,063 12%
Pedestrians 403 10% 151 4% 63 5% 617 7%
Bicyclists 198 5% 84 2% 11 1% 293 3%
Older road users 518 12% 387 11% 92 7% 997 11%
Heavy vehicle occupants 19 0.5% 56 2% 71 5% 146 2%
Casualties involved in heavy
170 4% 262 8% 130 9% 562 6%
vehicle crashes
Table 1: Contribution to death and serious injuries by high priority category and Accessibility/Remoteness Index Australia
(ARIA) region, WA 2005-2007 (Source: RSC, unpublished preliminary data unless otherwise stated)
# These are percentages of the total number of people killed and seriously injured between 2005 and 2007 unless otherwise indicated.
1. While only 5 per cent of total deaths and serious injuries, head-on collisions still account for 12 per cent of all fatalities on WA roads.
2. While this data identifies death and serious injury crashes in which speed was considered to be a contributory factor, MUARC contends that speed is a factor in all fatal
and serious injury crashes. Speed is at the core of the road safety problem. Speed as a contributing factor is also likely to be underestimated due to the difficulty of
assessing the contribution of low level speeding in crashes. Percentages are based on the total number of people killed and seriously injured in a crash in which a
determination whether speed was a factor was made.
3. Estimates based on RSC factsheets.
4. Percentage of the total fatalities in 2005 in which illegal drugs were detected in a driver.
5. Percentage of passengers and drivers killed and seriously injured in Police attended crashes where the vehicle was likely to have a seatbelt fitted.
6. Percentage of all drivers killed and seriously injured (does not include passengers and other road users).
7. Nine per cent of deaths and serious injuries involve Indigenous people although they are only three per cent of the WA population.
16Priority crash types
Run-off-road crashes Intersection crashes Head-on crashes
33% of people killed or seriously 33% of people killed or seriously 5% of people killed or seriously injured
injured in road crashes were involved injured in road crashes were involved in road crashes were involved in
in run-off-road crashes in intersection crashes head-on crashes
39% of regional and 62% of remote 44% of deaths and serious injuries 14% of people killed in road crashes
crash related deaths and serious in the metropolitan area occurred at were involved in head-on crashes
injuries are due to run-off-road crashes intersections
47% of the people aged 17-24 years 51% of the people aged 60 years 8% of regional and 5% of remote crash
that were killed or seriously injured in and over that were killed or seriously related deaths and serious injuries are
crashes were involved in run-off-road injured in crashes were involved due to head-on crashes
crashes crashes at intersections
Table 2: Crash priorities (Source: RSC, unpublished preliminary data for 2005-2007)
Where crashes occur in WA
The maps on the following pages illustrate where death and serious injury crashes occurred throughout WA between 2003
and 2007. In addition, the maps also show the volume of traffic on the specific road where the crash occurred. It can be
seen that where the most people live, work and travel is where the most crashes occur.
Many of these roads are built to our highest current standards. This highlights the need to find ways to build even better
roads and roadsides. Western Australia is a vast state with a low taxpayer population, which puts a limit on the resources
available to improve roads. We cannot afford to build every road to the highest possible level of safety. However, by
treating the roads carrying the most traffic beyond the requirements of current standards we can make substantial
reductions in the level of death and serious injury.
17
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Figure 8: Metropolitan region traffic volumes and death and serious
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Figure 10: Western Australia traffic volumes and death and serious injury crashes
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20About the Safe System
The ‘Safe System’ views the road transport system Central to the Safe System (see Figure 11) is an
holistically by seeking to manage the interaction acknowledgement of our limited ability as humans to
between road users, roads and roadsides, travel tolerate physical force. Human tolerance levels in crashes
speeds and vehicles. The Safe System recognises are shown in Figure 13 (page 41). The Safe System aims
it is probably not possible to prevent all crashes to manage crash energies to prevent death and serious
but aims to prevent those that result in death and injury. It also recognises human error in the system is
serious injury. inevitable no matter how educated and compliant we are
in obeying traffic laws. In Sweden it was estimated that
In Australia the Safe System road safety approach is
even with total compliance with current speed limits,
being adopted to help reduce road trauma as part of the
seatbelt wearing laws and drink driving laws about half of
Australian Transport Council’s National Road Safety Action
all road trauma would remain (Nilsson, 2005).
Plan 2009-2010. The Safe System has also been applied
internationally in countries such as Sweden and the While individual road users remain responsible for
Netherlands. Towards Zero has been framed using the behaving safely and complying with all traffic laws, the
Safe System approach. Safe System requires system designers to provide a road
system that increasingly prioritises safety outcomes to
cater for the mistakes people make in traffic.
e s Und
rul ers
o ad tan
o fr di
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nt
T AND COMPLIAN
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LER
me
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ra
A RO
TO
e
AD
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Safe Speeds
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he
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IN
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AD
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SE
RS
LE
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ES IN
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SH
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SE
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RI
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oads and Roadsi
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OUS
REVENT
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INJURY
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TO PHYSICAL
TO P
FORCE
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OR
NG
KI
D
R EA
TH
WO
de
o the
s
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a
rm
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nfo
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ce an
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n sin n
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go ca
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hicl Edu
es and people)
Figure 11: The Safe System (adapted from ATC, 2007)
While efforts will continue to prevent crashes, when they Of course, we cannot build a system where users can
do occur, there are three factors that directly influence behave irresponsibly. We must continue our efforts to
the severity of the outcome: the protection provided by improve road user behaviour. We do this by managing
the vehicle; and the nature of the object it hits. We can the licensing of vehicles, drivers and riders in the system,
manage these factors to keep crash energies below our informing and educating road users, enforcing road rules,
physical limits. and building our understanding of road crashes and risks,
to encourage road users to be alert and compliant.
21Safe System Cornerstones
The Safe System identifies four cornerstones that should Safe Vehicles
be adopted in a road safety strategy:
Improving the safety of the vehicles in the road system by:
Safe Road Use • promoting safety features that reduce the likelihood of
a crash (and reduce the impact of the crash on vehicle
Influencing road user behaviour by:
occupants as well as pedestrians and cyclists);
• advising, educating and encouraging road users to
• encouraging consumers and businesses to purchase
comply with road rules;
safer vehicles; and
• promoting the philosophy of shared responsibility;
• implementing mandatory safe vehicle procurement
• encouraging road users to drive unimpaired and alert, in Government fleets and recommending additional
and according to the prevailing conditions; safety features to be considered.
• managing the gradual introduction of novices into the The Safe System emphasises the importance of ensuring
system and understanding their specific needs; and these components work in support of each other to keep
• taking action against those who break the rules. crash energies below human tolerance limits.
Safe Roads and Roadsides
Improving road infrastructure by:
• designing and maintaining roads and roadsides to ‘Towards Zero incorporates the Safe
reduce the risk of crashes occurring and the severity of System. The Safe System recognises two
injury if a crash does occur; and key limits of people using the road transport
system - firstly, we all make mistakes (and
• providing a transport system that supports safe
some of us take risks) and secondly, there
outcomes.
are physical limits to the amount of force our
Safe Speeds bodies can take before we are injured.’
Ensuring speed limits and travel speeds reflect the safety Grant Dorrington BEM
of the road infrastructure by: Independent Chairperson,
Road Safety Council
• undertaking speed enforcement and education, and
• establishing speed limits according to the features of
the road and roadside, vehicle crash-worthiness and
the functional performance and known limits of the
road user.
22Safe System Guiding Principles
Creating a Safe System depends heavily on understanding 3. Shared responsibility. Previously the majority of
and implementing the following five principles. road safety responsibility rested with the individual road
user. Within a Safe System we all take an individual and
1. The limits of human performance. We all make
shared role in road safety. Road users remain responsible
mistakes and we need to acknowledge the limits of our
for complying with all road rules such as speed limits,
capabilities. Traditional approaches to road safety focus
using restraints, driving unimpaired and purchasing
on preventing risk taking behaviours. Prevention programs
vehicles with good safety features. System designers are
(such as drink driving, speeding and seat belt non-use) are
responsible for planning, designing and influencing the
still important but they cannot address the whole road
operation of a Safe System.
safety problem. We also make mistakes (for example
through inattention, poor gap selection while overtaking and 4. A forgiving road system. We need to design a
failure to stay within the travel lanes). A guiding philosophy road system that is ‘inherently safe’ so when crashes
that acknowledges ‘human error’ and fallibility is essential. do happen, deaths and serious injuries can be avoided.
Importantly, the road system is a real world illustration
2. The limits of human tolerance to violent forces. In
of the basic laws of nature that govern the movement of
a crash there are physical limits to the amount of force our
objects (including humans and vehicles). Drivers and riders
bodies can take before we are injured. The Safe System
are still expected to drive or ride safely but, a Safe System
seeks to create a road transport system in which the forces
must also be forgiving when mistakes happen. A forgiving
in foreseeable collisions are within our physical limits.
road system recognises and caters for the limits of human
This means the ability of a vehicle to protect its occupants
tolerance to physical force.
and other road users in common crash types and at typical
impact speeds must be known and taken into account by 5. Increased use of public transport. Buses and trains
road system designers and operators. In addition to vehicle are safer modes of travel than cars and motorcycles.
occupants, it is vital that we understand and cater for the The fewer people driving cars and riding motorbikes
physical tolerance limits of unprotected road users such as and scooters on the roads, the fewer death and serious
pedestrians, cyclists, motorcyclists and scooter riders. injury crashes will occur. Increasing the use of alternative
modes of transport also reduces congestion and vehicle
emissions and supports sustainability.
Towards Zero Means …
Knowing humans are vulnerable
Creating a road transport system that is ‘inherently safe’. In WA the users of the road transport system have large
differences in speed and mass with physically vulnerable and fallible humans at the centre.
Where humans fail, the system should work to absorb our mistakes. For example, installing safety barriers on priority roads
would help to prevent death and serious injury occurring as a result of run-off-road crashes.
23Why we need a Safe System The challenge
The Safe System seeks to prevent crashes that result in The challenge is how to direct limited resources to apply
death or serious injury. Safe System solutions to known road safety problems.
Some of these solutions (such as road treatments)
It does this by addressing the fact that in the event of a
are significant and expensive. However, over the next
road crash it is the interaction of three key elements that
12 years, there is an opportunity to develop, trial and
determine the outcomes:
implement alternative low cost treatments.
• the speed at which the vehicle is travelling at impact;
Western Australia’s Safe System places significant
• the safety performance of the vehicle; and emphasis on ensuring our community becomes more
• the object that is struck and how forgiving it is (for aware of the risks associated with road travel, so people
example, flexible roadside safety barriers are more can make more informed, and therefore, better decisions
forgiving than large, solid objects like trees). about vehicles, speed, route selection, travel mode and
behaviour.
The Safe System manages or reduces the risk from these
key elements. While the Safe System does rely on, and Additionally, through enforcement initiatives, the Safe
continues to encourage, safe road user behaviour, it System will continue to strive to protect the wider
recognises that some users will take risks and many more community from the actions of the small number of road
will make mistakes. users that repeatedly put the community at danger through
high risk, anti-social behaviour.
The Safe System helps to cater for our human limitations.
24Responsibility for Road Safety in WA
Responsibility for improving road safety rests with each of us.
The Government, through the Road Safety Council and others, has a key leadership role to
play on behalf of the community. It provides resources and has core responsibilities in areas
such as enforcement, education, road funding and building, licensing, and developing traffic
laws and other supporting legislation.
For many initiatives it is the Government’s role to consider Traditionally, the Road Safety Council has made
both the evidence and community views before deciding recommendations to Government about what needs to be
which of the Road Safety Council’s recommendations will done. Under the principle of ‘shared responsibility’ it is
be implemented. The Government considers road safety clear the Road Safety Council and its members will need
initiatives through Cabinet and, in particular, the ministers to continue to broaden their focus to engage and develop
with responsibility for the agencies represented on the partnerships with the community and business to facilitate
Road Safety Council. wide support for implementation.
The Road Safety Council is the body established under The Council will continue to provide the best possible,
legislation to identify how to improve the safety of evidence based, independent advice on road safety problems.
Western Australian roads and help reduce the number of
However, responsibility for road safety rests with each
people killed and injured in road crashes. It does this by:
of us. That is why we have suggested strategies for
• monitoring road safety data; the corporate sector, as well as the community, in this
strategy. If we all work together, we will achieve more.
• evaluating research and evidence to identify the most
effective ways to reduce the level of death and serious
injury and prevent property damage on our roads;
• co-ordinating implementation, particularly in areas
‘To achieve Towards Zero’s ambitious
that span more than one agency. Chief executive
targets, Road Safety Council members will
officers are accountable for the implementation of
focus on implementing initiatives which fall
their agency’s road safety initiatives; and
within their area of responsibility. With the
• evaluating the effectiveness of the road safety initiatives support and contribution of the community
once they are implemented and reporting on progress. and business, implementation will be more
effective and widespread.’
Grant Dorrington
Independent Chair Road Safety Council
25Road Safety Council Members
Implementing Towards Zero
The following table lists each member of the Road Safety Council as at March 2009 and highlights road safety responsibilities.
Road Safety Council Agency Areas of Authority
Department of Education and Training • Educates young road users through school and TAFE systems
Department of Health • Treats those injured in road crashes
• Collects and analyses road crash injury data
Insurance Commission of Western • Manages motor vehicle injury claims
Australia • Collects and analyses road crash injury data
• Provides supplementary funding to support agreed road safety initiatives
Main Roads Western Australia • Designs, builds, operates and maintains the state road network
• Sets speed limits
• Collects and analyses road crash injury data
Department for Planning and • Sets standards for the licensing of drivers, riders and vehicles
Infrastructure • Licenses drivers, riders and vehicles
• Supports and encourages the use of alternative forms of transport
• Encourages urban design and planning that enhances road safety
Department of the Premier and Cabinet • Provides leadership among key agencies in the co‑ordination of road
(Office of Road Safety) safety activities
• U
ndertakes community education, research, policy development and data
analysis
• Monitors and reports on progress
Royal Automobile Club of WA Inc. • Represents all road users on the Road Safety Council
• E ducates the community (particularly in relation to safe roads and safe
vehicles)
• Advocates for road safety improvement
Western Australian Local Government • Represents local government on the Road Safety Council
Association • P rovides leadership to, and advocacy for, local government (which
designs, builds and maintains the local road network)
• Educates the community
• Advocates for road safety improvement
Western Australia Police • Enforces road user behaviour
• Collects and analyses information about road crashes
Table 3: Road Safety Council members’ responsibilities
Towards Zero Means …
Being ethical
The ethical and moral foundation for a Safe System is that we do not want to design and operate a road system that
allows consistently high levels of serious trauma. It is unethical, and puts us as a community at risk of accepting failure
as normal. By viewing the road transport system in this new light, and working backwards from the ultimate vision, we
can make changes for fundamentally safe designs that can move the safety of the system a large step forward.
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