Confronting “Death on Wheels” Making Roads Safe in Europe and Central Asia ESTABLISHING MULTISECTORAL PARTNERSHIPS TO ADDRESS A SILENT EPIDEMIC PATRICIO MARQUEZ THE WORLD BANK APRIL 2010

Outline: Challenges and Opportunities in Addressing Road Safety in the ECA Region* 1. The problem: trends, size, characteristics, causes 2. Effective measures to improve road safety 3. Current international road safety policy 4. Possible strategies and actions by the World Bank with partners * Baltic, Balkans, EE, CIS, Turkey.

Road Traffic Injury (RTI) Mortality Rate Trends Europe, EU-27 and CIS Countries, per 100,000, 1980–2007 large, increasing disparities CIS countries: Azerbaijan, Belarus, Georgia, Kazakhstan, Kyrgyzstan, the Republic of Moldova, Russia, Tajikistan, Turkmenistan, Ukraine, and Uzbekistan. EU-27 countries: Austria, Belgium, Bulgaria, Cyprus, the Czech Republic, Denmark, Estonia, Finland, France, Germany, Greece, Hungary, Ireland, Italy, Latvia, Lithuania, Luxembourg, Malta, the Netherlands, Poland, Portugal, Romania, Slovakia, Slovenia, Spain, Sweden, and the United Kingdom. Source: WHO EURO Health for All Data Base (2009) European Region EU CIS European Region EU-27

RTI Death Rates in WHO-EURO Member Countries per 100,000 Population, San Marino Malta Netherlands Switzerland Norway Sweden United Kingdom Israel Germany MKD* Finland France Austria Ireland Spain Italy Uzbekistan Serbia Iceland Belgium Cyprus Portugal Bosnia and Herzegovina Czech Republic Hungary Romania Azerbaijan Bulgaria WHO EURO Turkey Croatia Armenia Albania Tajikistan Slovenia Poland Estonia Greece Republic of Moldova Slovakia Belarus Georgia Latvia Turkmenistan Montenegro Ukraine Lithuania Kyrgyzstan Russian Federation Kazakhstan Deaths per population High-income countries Low- and middle-income countries Source: WHO-EURO, 2009 Kazakhstan Russian Federation Kyrgyzstan Ukraine Montenegro Turkmenistan Latvia Georgia Belarus Slovakia Rep. of Moldova Greece Estonia Poland Slovenia Tajikistan Albania Armenia Croatia Turkey Average-WHO-EURO Bulgaria Azerbaijan Romania Hungary Czech Republic Bosnia & Herzegovina Portugal Cyprus Belgium Iceland Serbia Uzbekistan Italy Spain Ireland Austria France Finland Fmr Yugoslav Rep. of Macedonia Germany Israel UK Sweden Norway Switzerland Netherlands Malta San Marino 3025

GDP and RTIs mortality in ECA

Economic development does not lead automatically to lower road fatalities, therefore need for effective road safety management strategy

Deaths, disability and damage – who bears the brunt? 4-wheel vehicle occupants: 40-75% of RTI deaths in ECA Young adults, especially men: 55% of road traffic deaths in ECA countries are people aged 15–44, mostly 15–29; > 80% of deaths are men Cyclists, motorcyclists at high risk (but small % of total) Motorcyclists, pedestrians at 7-9 times greater risk of death if in an road crash than people in vehicles Pedestrians – more likely to be children or elderly, and people with lower incomes In Albania, Belarus, Kyrgyzstan, Tajikistan, and Ukraine, pedestrians are ≥ 40% of all road fatalities, 31-38% in all ECA

Deaths, disability and damage – extent 80,000 road traffic deaths, 820,000 injuries in ECA in 2007 (Data underestimate and underreport – especially non-fatal injuries, and differ in availability, quality, and completeness) Economic Impact: 1-2% of GDP (health care & rehabilitation costs, insurance, legal, lost productivity, property damage) Globally, costs to governments > US$500 billion annually Highest costs in ECA: large economies with big populations: Air pollution, noise Greenhouse gas emissions contribute to global warming Fear deters walking, biking. Less mobility and physical activity reduces health, increases risks for cardiovascular diseases, strokes, diabetes, obesity Russia (US$34 billion per year, 33,308 deaths in 2007) Turkey (US$14 billion) Poland (US$10 billion) Ukraine (US$5 billion) Russia (US$34 billion per year, 33,308 deaths in 2007) Turkey (US$14 billion) Poland (US$10 billion) Ukraine (US$5 billion)

Road Traffic Injury Causes Lack of data /problem awareness Inadequate response, resources Roads Bad road design (no crossings, walkways, poor visibility) Roadside hazards (trees, poles, signs) Mixing traffic and pedestrians Vehicles Unsafe vehicles, without airbags & other crash protection devices Huge increase in vehicle numbers (poor public transport) Behaviors Inadequate laws/rules + poor enforcement Bad driving (speeding, recklessness, alcohol, some medications) Not using seatbelts, helmets (cyclists, motorbikes) Mobile phone texting “Are you in a hurry to reach us?"

WHAT TO DO? INTERVENTIONS ALONE WILL NOT SUFFICE

Current Road Safety Policy – Holistic “Safe Systems” approach Principles: Cannot prevent all road crashes, can reduce traffic injuries Design road traffic systems to take account of human error and vulnerability of human body Responsibility and accountability for road safety shared by road and car designers and road users

Effective Approaches Action Areas: Prevent road traffic crashes and injury Minimize injuries when crashes occur Recovery: reduce injury severity afterwards The Haddon Matrix: a holistic framework for intervention focusing on road transport and its risks Car crashes divided into 3 phases: before, during and after to highlight when crashes can be prevented or their effects minimized

Haddon`s Matrix

Adopting a Road Safety Management System Source: Bliss and Breen, building on the frameworks of Land Transport Safety Authority, 2000; Wegman, 2001; Koornstra et al, 2002; Bliss, 2004

Institutional management functions Delivered by government entities, in partnership with civil society and business entities to achieve RESULTS

RESULT FOCUS A foremost and pivotal institutional management function It is a programmatic specification of targets and means to achieve them with accountability Provides cohesion and direction, strategic orientation linking interventions with results, analyzes what could be achieved over time Sets a performance management framework for delivery of interventions and their intermediate and final outcomes

FUNCTIONS (i) Coordination: horizontally and vertically, partnerships Legislation: the legal instruments for governance; defines responsibilities, accountabilities, interventions, and related institutional management functions

FUNCTIONS (ii) Funding and resource allocation: how to finance interventions and related management functions on a sustainable basis Different mechanisms adopted in various countries

Funding Sources Source: Adapted from OECD (2002) and Aeron-Thomas and others (2002), cited in Peden and others (2004); ECORYS (2006). Traditional funding sources: General tax revenues Road funds (fuel taxes, vehicle registration and licensing fees, and heavy vehicle road use charges) Road user fees (driver’s and car license fees, vehicle inspection fees) Vehicle insurance premium levies Earmarked charges (eg revenue from traffic fines used to finance road safety activities) Alternative financing sources: Price/tax policy (fiscal incentives for private and business investments in safety measures such as retrofitting older vehicles with safety belts) Insurance premiums (higher premiums for less safe vehicles, and drivers with poor safety records; pay- as-you-drive or pay-as-you-speed mechanisms, spread costs of risks for injury-causing crashes more fairly; assign total cost of car crashes to the person who caused it) Financial options (make unsafe behavior more expensive and give financial reward for safe behavior)

FUNCTIONS (iii) Promotion: sustained communication of road safety as core business for government and society to support interventions Monitoring and evaluation: the systematic and ongoing measurement of outputs and outcomes, and impact evaluation—did results were achieved? Need for registries for vehicles and drivers, crash databases, and survey work

FUNCTIONS (iv) Research and Development and Knowledge Transfer: the systematic and ongoing creation, codification, transfer and application of knowledge that contributes to improved efficiency and effectiveness of road management system. Knowledge transfer must be evidence- based and grounded in practice by a learning by doing process.

Classification of Interventions Intervention typesStandards and rulesCompliance Planning, design, operation and use of the road network Standards and rules cover the safe planning, design, construction, operation and maintenance of the road network; and govern how it is to be used safely by setting speed and alcohol limits, occupant restraint and helmet requirements, and restrictions on other unsafe behaviors. Compliance aims to make road builders and operators, the vehicle and transport industry, road users and emergency medical and rehabilitation services adhere to safety standards and rules, using a combination of education, enforcement and incentives. Conditions of entry and exit of vehicles and road users to the road network Standards and rules also address vehicle safety standards and driver licensing requirements Recovery and rehabilitation of crash victims from the road network Standards and rules can also be set for the delivery of emergency medical and rehabilitation services to crash victim Source: Bliss, 2004

Effective proven measures Better road design Remove roadside hazards (trees, poles) Install crash barriers Clear, helpful, safely placed road signs Central islands, “pedestrian refuge” Well-designed pedestrian crossings Separate vehicles from pedestrians and cyclists Audible road edge-lining, seal shoulders, construct passing lanes Better road markings Traffic calming (speed bumps, cameras)

Effective proven measures (2) Improve vehicle safety In-vehicle crash protection (airbags, seatbelts, child car seats) Vehicle licensing and inspection to enforce roadworthy standards Daytime running lights Require and enforce helmet use with bicycles, motorbikes

Effective proven measures (3) Behavior change - education, law/regulation enforcement Lower speed limits: 30 km/hr in residential areas, 50 km/hr in other urban areas Enforcing blood alcohol level limit of ≤0.05g/dl could prevent 5- 40% of RTI deaths (random breath testing better than set checkpoints, taxes and marketing, sales regulations are effective) Mandatory, enforced seat belt use Prevention of distracting driving due to use of phones and texting Media coverage, education campaigns + tough sanctions Graduated driving licenses (curfew, passenger restrictions) and more training during learner period reduce deaths among young drivers (US) Better public transport and land use reduces car travel

Health Sector Response Public health actions: collect and analyze data, research causes of RTI, advocate effective action, define and implement protective policies and practices and preventive interventions Primary health care providers: medical assessments of elderly/impaired drivers, advice on alcohol use and effects on driving of medications Emergency medical services: communication for rapid response, initial emergency care and stabilization, transport to health facility, well-trained teams with medicines and equipment, quality assurance Safe blood supply &transfusion Rehabilitation services

Cost-effectiveness – depends on risk factors, and distribution of fatalities/injuries by road user group Average cost per disability-adjusted life (DALY) year saved, adjusted for purchasing power parity

Safety Target Final outcomesFinal outcomes can be expressed as a long term vision of the future safety of the road traffic system (e.g., as in Vision Zero and Sustainable Safety) and as more short to medium-term targets expressed in terms of social costs, fatalities and serious injuries presented in absolute terms and also in terms of rates per capita, vehicle and volume of travel Intermediate outcomesIntermediate outcomes are linked to improvements in final outcomes and typical measures include average traffic speeds, the proportion of drunk drivers in fatal and serious injury crashes, seatbelt-wearing rates, helmet- wearing rates, the physical condition or safety rating of the road network and the standard or safety rating of the vehicle fleet. OutputsOutputs represent physical deliverables that seek improvements in intermediate and final outcomes and typical measures include kilometers of engineering safety improvements, the number of police enforcement operations required to reduce average traffic speeds and the number of vehicle safety inspections, or alternatively they can correspond to milestone showing a specific task has been completed. Source: Bliss, 2004

ECA Efforts to Prevent Road Transport Injuries Good Examples: Poland: public education on road safety, seat-belt use, drunk driving; training for professional drivers; road signs warning of black spots; improved pre-hospital care Armenia: dramatic improvements in seatbelt use by enforcing seatbelt law Russia: fines for not using a seatbelt increased 10x, new law against crossing into an oncoming lane punishable by revoking driver’s license, anti-alcohol campaigns launched much more is possible Of 29 countries in ECA: 27 have a lead agency for road safety 19 allocate funds in the national budget 19 have a strategy with clear targets, 16 of these are funded 25 set blood alcohol limits at/below recommended level (0.05g/dl) 27 do spot checks for alcohol levels many require formal audits for major new road construction projects and regular audits of existing roads, many promote public transportation, walking, and cycling But Only 8 countries have seatbelt used at least 70% (in front seats) Urban speed limits are 60km/h in 15 countries, 70 km/h in 1 (higher than recommended) Quality of formal, publicly available pre- hospital post-crash care systems varies Enforcement is often lacking

World Bank Support (to date)  Practical guidelines to help countries implement these recommendations  Global Road Safety Facility generates funding and Technical Assistance for country road safety efforts  Road safety management capacity reviews done in many ECA countries  World Bank-supported road safety investments in transport and health projects  Information and policy dialogue

What more could the World Bank do in ECA? 2004 World Report identifies 6 key steps for success: 1. Identify a lead agency in government 2. Assess road traffic injury problems, policies and institutions, and capacity for prevention 3. Prepare a national road safety strategy and plan of action 4. Allocate financial and human resources 5. Implement specific actions and evaluate their impact 6. Support national capacity and international cooperation. Principles: systematic, sustained, successful effort has 3 parts: Institutional management interventions Results

What more could the World Bank do in ECA? (1) 1. Build institutional management capacity Provide training and information for policy makers, practitioners Support existing networks of people responsible for road safety Help countries improve data on RTIs and causes Specify lead agency reforms needed 2. Help countries choose interventions well Review national road safety management capacity - assess the situation, propose strategies and actions with realistic targets and budgets 3. Support a safe system approach + results focus aiming to end road deaths and serious injuries (see next slide for specifics)

What more could the World Bank do in ECA? (2) 3. Support a safe system approach + results focus aiming to end road deaths and serious injuries: Analyze planned road investments for safety, improve design Review road sections where many crashes occur to target investments Lower urban speed limits to 50 km/h; 30 km/h in residential areas; enforce – speed cameras are cost effective Enforce alcohol limits with systematic police enforcement (breath tests, high- visibility random road checks), high-profile media campaigns, and swift severe penalties Enforce use of seat belts – campaigns, penalties, car restraint specifications Reduce young driver risk – graduated licensing scheme, extended training Reduce pedestrian risk – barriers, traffic “calming”, more pedestrian facilities Improve speed and quality of emergency care (at crash site and after) – evaluate, identify and fix weak areas, train Include road safety as a key “performance attribute” of transport Demonstration projects, with strong evaluation

Focus areas for World Bank support that is evidence-based, cost-effective, and follows international best practice: A. Capacity reviews – to ensure country commitment, customization, consensus B. Ensure lead agency has capacity, mandate, and funding to manage for results C. Invest in management capacity to deliver results in stages D. Learn by doing demonstration projects that rapidly achieve safety improvements in high-risk areas, then build on success Key Partners: International Road Assessment Program (iRAP) - engineering safety RoadPOL - traffic police peer-to-peer services International Road Traffic Accident Database Group - data World Health Organization (WHO) - technical support in traffic injury prevention, injury surveillance, emergency trauma services & care Ministries: transport, health, law enforcement, finance, interior, education Private sector: insurance, auto makers, media, regulatory agencies CSOs: consumer organizations, faith-based organizations Parliaments

Effective Road Safety Program Building Blocks Intervention AreaInvestments and actions 1. Institutional capacity buildingEstablish, organize and strengthen management and operational capacity of a lead agency for road safety, resource it adequately, make it publicly accountable. Training programs for all official involved in management and design of road safety programs and implementation of road safety programs. 2. National road safety policies, strategies, plans; organizational & co-ordination arrangements Technical assistance for developing/updating legislative framework, policies, strategies and plans with targets to halve RTI fatality rates by Create safer road environments Investments to improve safety in demonstration road corridors and beyond (e.g. guard rails, signaling and marking, reengineering most critical crossroads in urban areas). Technical assistance to do network safety rating surveys and road safety audits and inspections. 4. Enforcement: equip and train traffic police to deter risky behavior Acquire radar equipment, speed cameras, and breath analyzers, to enable roadside checks to control and monitor speed, alcohol, and seatbelt use. 5. Public information and education campaigns Technical assistance and funding to develop public IEC programs to support enforcement of laws and regulations for speed-control, seatbelt use, and deterring drinking and driving. 6. Improve health promotion and prevention programs, emergency medical services, and rehabilitation services As part of health system reforms and modernization, technical assistance to strengthen public health programs, national and regional road safety strategies, and organizational arrangements for first aid emergency responses; funding for ambulances, medical equipment and other inputs; training of medical personnel on basic and advanced life support systems; communication systems investments; and technical assistance and investments to develop/strengthen trauma centers, safe blood transfusion services, and rehabilitation programs. 7. Monitoring and evaluationInvestments in computerized information systems for data collection, assessment and sharing information for decision-making and program management across sectors.

 Safe, clean, affordable transport is a development priority.  Preventing road traffic injuries is a major public health priority.  Proven, effective, cost-effective “good practices” can save lives and money, prevent disability, improve other health outcomes and the environment.  A “safe system” needs well-coordinated, cooperative action by transport, health and policing/enforcement sectors. Interventions alone will not suffice.  The World Bank could do more, with partners, to help countries in Eastern Europe and Central Asia make roads safer. Specific areas for action are clear. Thank you! Take Away Messages: