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STATE OF ILLINOIS

MOTORCYCLE SAFETY PROGRAM

ASSESSMENT

October 24 – 28, 2005

National Highway Traffic Safety Administration Technical Assistance Team

Lorrie J. Laing Eileen F. Michaels Robert E. Reichenberg Tom Tennery

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TABLE OF CONTENTS Subject Page ACKNOWLEDGEMENTS ....................................................................................................... 1 TECHNICAL ASSISTANCE TEAM MEMBERS............................................................................ 2 INTRODUCTION ................................................................................................................. 3 SUMMARY OF MAJOR RECOMMENDATIONS........................................................................... 6 PROGRAM MANAGEMENT (1-A)........................................................................................... 8

Advisory................................................................................................................ 8 Status ................................................................................................................... 8 Recommendations.............................................................................................. 12

PROGRAM MANAGEMENT (1-B)......................................................................................... 14

Advisory.............................................................................................................. 14 Status ................................................................................................................. 14 Recommendations.............................................................................................. 15

MOTORCYCLE PERSONAL PROTECTIVE EQUIPMENT............................................................ 17


MOTORCYCLE OPERATOR LICENSING ................................................................................ 19


RIDER EDUCATION AND TRAINING ..................................................................................... 23


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MOTORCYCLE OPERATION UNDER THE INFLUENCE OF ALCOHOL OR OTHER DRUGS.............. 29


MOTORCYCLE CONSPICUITY AND MOTORIST AWARENESS PROGRAMS................................. 32


PUBLIC INFORMATION AND EDUCATION EFFORTS................................................................ 35


CREDENTIALS OF TECHNICAL ASSISTANCE TEAM................................................................ 39 ASSESSMENT AGENDA ..................................................................................................... 43 GLOSSARY ...................................................................................................................... 46

State of Illinois Motorcycle Safety Program Assessment

October 24 – 28, 2005

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ACKNOWLEDGMENTS The Technical Assessment Team acknowledges and thanks Michael Stout, Director, Illinois Department of Transportation, and Robert Young, Manager, Regulations and Training Unit, and their respective staffs for their guidance, planning and support in making this assessment possible. The Assessment Team also acknowledges the National Highway Traffic Safety Administration (NHTSA) staff for its assistance in making the assessment possible. The Assessment Team believes that this report will contribute to the State’s efforts to enhance the effectiveness of its motorcycle safety programming to prevent injuries, save lives and reduce the economic costs of motor vehicle crashes on Illinois roadways. Evelyn Behrle’s support during the preparation phase of the report was especially appreciated. The team wishes to recognize her patience, administrative ability, and writing and editing skills. We gratefully acknowledge her contribution. Special thanks to all the people who appeared before this assessment team to provide the information, data, and documents necessary for the team to conduct an effective assessment. Their candor and thoroughness in discussing their activities addressing motorcycle safety in Illinois greatly assisted the Assessment Team in conducting a complete review. The Assessment Team also recognizes the dedication of all those involved in making motorcycling safe in Illinois, and hopes that this report will further those efforts.


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ILLINOIS TECHNICAL ASSISTANCE TEAM MEMBERS


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INTRODUCTION In 2003, in the United States, motor vehicle traffic crashes were the leading cause of death for the age group 4 through 34. In 2004, 42,636 people were killed and 2.8 million were injured nationwide in motor vehicle crashes. Recent National Highway Traffic Safety Administration (NHTSA) data indicates that fatalities and injuries attributable to motorcycle crashes are becoming a larger portion of this grave public health problem. Motorcycle crash-related fatalities have been increasing since 1997, while injuries have been increasing since 1999. The effects of a crash involving a motorcycle can often be devastating. Each State should have a comprehensive program to promote motorcycle safety and prevent motorcycle crashes and related injuries. To assist States in determining whether their programs are truly comprehensive, NHTSA developed a motorcycle safety program assessment process and instrument. At a State’s request, a multi-disciplinary technical assessment team of national experts conducts a thorough review of the State’s motorcycle safety efforts, identifies strengths and provides recommendations to enhance the program. This approach allows States to use highway safety funds to support the Assessment Team’s evaluation of existing and proposed motorcycle safety programs and activities. NHTSA acts as a facilitator by assembling a team of individuals with demonstrated competence in motorcycle safety program development and evaluation. Examples of program expertise among team members include traffic safety program management, rider education and training, motorcycle operator licensing, research and evaluation, and communications. NHTSA’s assistance in assessing Illinois' motorcycle safety program was requested by the Division of Traffic Safety of the Illinois Department of Transportation (IDOT). NHTSA agreed to facilitate this assessment and met with representatives from this organization to define key issues of concern to the State. The Illinois Motorcycle Safety Program Assessment was conducted October 23-28, 2005, in Springfield, Illinois. Arrangements were made for program experts and key individuals to deliver briefings and provide support materials to the Assessment Team on a wide range of topics over a three-day period. Twenty-five presentations were made to the team, and some presenters provided additional information and clarification. A full list of presenters and their affiliations can be found in the assessment agenda attached to this document.


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Illinois Geographic and Demographic Profiles Illinois is currently the fifth most populous State in the country, up from sixth as of the 2000 Census. According to the census there were 12,419,293 individuals in Illinois; the population was estimated at 12,653,544 as of July 1, 2003. The Illinois population profile is very similar to that of the United States as a whole. The population is approximately 75 percent White (75.1% U.S., 73.5% IL), over 10 percent Black (12.3% U.S., 15.1% IL), and about 12 percent Hispanic (12.5% U.S., 12.3% IL). Illinoisans live in more urban locations than residents of the country as a whole: 87.8 percent of Illinois residents live in urban areas, but only 79 percent of the U.S. population lives in such areas. In terms of land mass, Illinois is the 23rd largest State; its 102 counties cover 55,593 square miles. The population is not evenly distributed across the State, however. The majority of the State’s population lives in the following northeastern counties: Cook (includes Chicago), DuPage, Lake, McHenry, Will, and Kane. According to the American Community Survey (ACS), 66 percent of the State’s population lives in one of these six counties, yet these counties account for less than 10 percent of the land in Illinois. These six counties (excluding the City of Chicago) are referred to as “the Collar Counties”; the remainder of the State is referred to as “Downstate” Illinois. Downstate Illinois accounts for one-third of the population but over 90 percent of Illinois’ land. As of the 2000 Census, there were 12 counties outside the Collar Counties whose populations exceeded 100,000. These included St. Clair and Madison counties in southwestern Illinois; Peoria, Tazewell, McLean, Macon, Champaign, and Sangamon counties in central Illinois; La Salle and Kankakee counties in northeastern Illinois; and Rock Island County in northwestern Illinois. These counties include the small cities (at least 40,000 inhabitants) of Belleville, Bloomington-Normal, Decatur, Moline, Peoria, Rockford, Springfield, and Urbana-Champaign. Collectively, these cities account for 6.1 percent of the State population and 17.5 percent of the Downstate population.


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Motorcycle Statistics In recent years in Illinois motorcycle sales and registrations have increased dramatically. The number of new motorcycles sold went from 8,032 in 1998 to 49,784 in 2004 while the number of registrations went from 192,087 to 259,380 during the same time. Unfortunately motorcycle fatalities increased proportionately, growing from 99 in 1998 to 157 in 2004. This is the largest number of motorcyclists killed since 1988, when the number of fatalities was 178. A review of fatal motorcycle crash data indicates that motorcycle riders accounted for 12 percent of all people killed on Illinois roadways in 2004. Of these, at least 63 (or 47%) of those tested had been drinking and nearly one-third were unlicensed or not properly licensed. Eighty to 85 percent were not wearing helmets. Motorcyclists accounted for 18 percent of all work zone fatalities.

Illinois Motorcycle FatalitiesIllinois Motorcycle Fatalities

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Fatalities


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SUMMARY OF MAJOR RECOMMENDATIONS IDOT clearly recognizes the need for a comprehensive approach to address motorcycle crashes and fatalities. This should include not only rider education and training, but also the use of helmets and other protective gear, motorcycle operator licensing, impaired riding, motorcycle conspicuity and motorist awareness and public information and education. The State’s nationally recognized rider education program also needs increased resources to meet the demand for training. Recommendations Increase the annual Cycle Rider Safety Training Program (CRSTP) appropriation to at least $3.5 million by July 1, 2006. Convene a technical working committee comprised of key stakeholders to develop a strategic motorcycle safety plan for Illinois. Use Federal funds wherever possible to address other motorcycle safety issues (impaired driving, aggressive driving, conspicuity, motorist awareness, etc.). Create a task force of representatives from the insurance industry, law enforcement, medical professionals, motorcycle dealers, motorcycle organizations, safety advocates, and other interested entities to explore ways to increase the use of helmets and protective clothing. Continue to seek support for passage of a helmet law for all motorcycle operators and passengers. Enact legislation to establish a provisional licensing system for motorcycles. Enact legislation to reduce the period for which an instruction permit is valid to six months for motorcycle or motor-driven cycle applicants and limit the number of renewals. Establish a protocol and timeline to conduct comprehensive annual program evaluations.


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Establish a five-year plan for program development that includes milestones to meet forecasted training demand. Design and implement a comprehensive impaired-riding public information and education (PI&E) campaign. Develop and implement a comprehensive and coordinated statewide plan to address both conspicuity and motorist awareness. Develop a coordinated statewide plan for motorcycle safety and PI&E efforts. Encourage the use of full protective equipment by motorcyclists through PI&E campaigns.


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1. PROGRAM MANAGEMENT Each State, in cooperation with its political subdivisions, should have a comprehensive program to promote motorcycle safety and prevent motorcycle crashes and related injuries. To be effective in reducing the number of motorcycle crashes, injuries, and fatalities, State programs should address program management; the use of helmets and other protective gear; motorcycle operator licensing; rider education and training; impaired riding; motorcycle conspicuity and motorist awareness; and public information and education. 1A. Legislation, Regulation, Policy and Program Planning Advisory Each State should have in place comprehensive enabling legislation with provisions for a lead motorcycle safety agency, as well as a funding mechanism, regulations and operational policies and procedures. Each State should identify the nature and extent of its motorcycle safety problems; establish goals and objectives for the State motorcycle safety program; implement projects to reach the goals and objectives; and have centralized coordination for overall system implementation and operation which includes an established process for managing its planning, program control, and evaluation activities. Status Public Act 82-649 is the enabling legislation known as the “Cycle Rider Safety Training Act,” which became effective January 1, 1982. The Act defines the Illinois Department of Transportation as the agency with the power, duty, and authority to administer the Act and promulgate rules and regulations for the administration of the Act. Further, the Act defines:

• “cycle” as a motorcycle, motor-driven cycle or motorized pedalcycle, as defined in the Illinois Vehicle Code (IVC);

• “cycle rider” as every person who rides and is in actual physical control of a cycle; and


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• “Cycle Rider Safety Training Courses” as courses of instruction in the use and operation of cycles, including instruction in the safe on-road operation of cycles, the rules of the road, and the laws of the State relating to motor vehicles, which courses meet the minimum requirements of the Act and the rules and regulations issued by the IDOT as meeting such requirements.

The Act establishes that “[A]ny State or community college, State university or community agency designated by the Department may organize a Regional Cycle Rider Safety Training Center” for the purpose of offering cycle rider safety training courses. The curriculum and accreditation for the courses, geographic areas serviced by the regional training centers, and course instructor qualifications and certification requirements are to be established by IDOT rules and regulations. Courses are to be open to all Illinois residents who hold a valid driver’s license and who are at least 16 years old. “The courses may be offered as credit or non-credit courses; however no fee shall be charged except for a nominal registration fee which must be refunded upon completion of the course.” Public Act 82-649 also created the Cycle Rider Safety Training Fund, which has undergone several amendments since 1982. Currently the Secretary of State (SOS) is directed to deposit with the State Treasurer an amount equal to each annual fee and each reduced fee for the registration of each motorcycle, motor-driven cycle and motorized pedalcycle processed by the SOS during the preceding quarter. The State Comptroller is directed to transfer funds quarterly to the program’s trust fund. The trust fund status was added through Public Act 87-1217 (filed December 11, 1992) after $230,415 was transferred from the fund to the State’s General Fund as a result of the passage of Public Act 87-0838 (Emergency Budget Act) due to a fiscal crisis in the State. The purpose of the trust fund was to protect the money and ensure it would be used solely for the Cycle Rider Safety Training Program (CRSTP). After the trust fund was created an additional $1.57 million over the previous two years was transferred from the fund due to another State fiscal crisis. Additionally, an administrative fee for each of the special and trust funds was established to be charged each and every year. Of specific interest to the team was this language in the act: “In addition, the Department may accept any Federal, State, or private money for deposit into the fund and shall be used by the Department only for the expenses of the Department in administering the provisions of this Act, for funding of contracts with approved Regional Cycle Rider Safety Training Centers for the conduct of courses, or for any purpose related or incident thereto and connected therewith.” This language is significant


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because it has been interpreted to mean the IDOT can only fund expenses related to rider education. The net result is that the funding does not support a comprehensive motorcycle safety program to address not only rider education and training, but also the use of helmets and other protective gear, motorcycle operator licensing, impaired riding, motorcycle conspicuity and motorist awareness, and public information and education. Although Public Act 87-1217 also allows IDOT to accept Federal money to support motorcycle safety programming, the rules that govern the fund would still apply meaning that any Federal funds deposited into the fund would have to be used only for training. Given the size of the impaired riding problem in motorcycle-related crashes, justification could easily be made to use Federal funds to address this problem. IDOT could use Section 402, 410, 163, 164, or possibly 157 incentive funds to address impaired riding. When supported through the State’s problem identification process, it would also be possible to fund other motorcycle-related issues through Section 402 or 157 incentive funds. SAFETEA-LU will also provide a source of funding to address additional countermeasure areas. Certainly motorcycle safety issues could be included in some of the programming already in place, such as the Law Enforcement Liaison (LEL) program, the Traffic Safety Resource Prosecutor program, the Police Traffic Training grant, the sTEP and STAR law enforcement grants, as well as during the annual alcohol mobilizations. All of these funding opportunities would expand the State’s motorcycle safety program countermeasures beyond rider education and training provided that the money was not placed in the CRST fund which would restrict its use. It is clear from statistics and presenter information that motorcycle crashes in work zones have been increasing. This highlights IDOT’s opportunity to address motorcycle safety in road repair and construction projects, as well as in the decision-making processes for signage, signals, and roadway markings. Assuring that motorcycle safety considerations are addressed in the planning of IDOT projects requires few resources but may significantly decrease motorcycle crashes. The source of funding for the program is 27 percent of the motorcycle registration fee (the registration fee is currently $45 annually) and $5 from every motorcycle and motor-driven cycle endorsement and renewal ($1.25 each year for each four-year period). Revenues for Fiscal Year 2004 were $3,590,455.25 and $4,059,013.49 in 2005. According to the Illinois State Comptroller’s Web site, the trust fund balance is currently $5,064,885.68. The Fiscal Year 2006 appropriation for the program is $2,600,000; the same level since 2002. Requests for an increase of $900,000 in appropriations have been denied for the past several years, although training has increased 19.3 percent over that same period.


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The CRSTP is housed in the Commercial Vehicle Safety Section of IDOT’s Division of Traffic Safety, Bureau of Safety Programs & Administrative Services. Within the Commercial Vehicle Safety Section, the Unit Manager is responsible for the adoption of administrative rules involving truck regulations and the administration of the CRSTP. This Unit Manager is identified as the primary contact for the State’s rider education program. Two of the Unit Manager’s employees are each responsible for two of the program’s four training centers. It is important to note that the Secretary of the Illinois Department of Transportation is the Governor’s Representative (GR) for Highway Safety, and that the State Highway Safety Office (SHSO) is located in the Division of Traffic Safety. Motor vehicle crash data and analysis is provided through IDOT’s Accident Information Section. The State’s Annual Crash Facts & Statistics publication is compiled by this section, which also posts crash data on the department’s Web site and provides numerous statistical reports throughout the year. Motorcycle crash data are on the department’s Web site at www.dot.il.gov/trafficsafety/crashreports.html. Of interest to the team was this section’s creation of the “F-Desk” database which provides up-to-date fatal crash information. While certainly not at the level of detail of final crash reports, this timely information allows planning staff to identify simple trends and problem locations to make programming adjustments more quickly. The SHSO’s evaluation staff provides additional analysis of this data to further identify the nature and extent of motorcycle safety problems and assist in the creation of motorcycle goals and objectives for the highway safety plan. Illinois, like many States, has done little to address motorcycle safety in its highway safety plan for several years. In fact, no presenters were aware of any use of Federal funds for motorcycle safety over the past 10 years. However, according to the Illinois Federal Fiscal Year (FFY) 2006 Highway Safety Plan, using Section 402 funds, a portion of $250,000 has been obligated to conduct this motorcycle safety assessment, hire a motorcycle/pedestrian/pedalcycle coordinator, and increase training opportunities for beginning motorcycle riders as a strategy to expand the State’s motorcycle safety programming. Further, the SHSO has committed to use recommendations from this assessment to guide a renewed emphasis on motorcycle safety in Illinois.


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In September 2005 Illinois released its Comprehensive Highway Safety Plan (CHSP) which focuses on the four E’s of highway safety: engineering, enforcement, education, and emergency service, and integrates them into 10 emphasis areas. Motorcycles are specifically addressed under Vulnerable Users. The plan’s proposed strategies to address motorcycle crashes and injuries include:

• pursuing legislation for a mandatory motorcycle helmet law; • promoting programs to discourage drinking and motorcycling; • identifying locations having disproportionately large numbers of vulnerable user

crashes; and • increasing enforcement at identified high-crash locations.

Successes in other emphasis areas such as alcohol and other impaired driving, driver behavior and awareness, intersections, roadway departures, and work zones are likely to decrease motorcycle crashes as well. Recommendations Increase the annual CRSTP appropriation to at least $3.5 million by July 1, 2006. Convene a technical working committee comprised of key stakeholders to develop a strategic motorcycle safety plan for Illinois. Use Federal funds wherever possible to address other motorcycle safety issues (impaired driving, aggressive driving, conspicuity, motorist awareness, etc.). Fund a full-time position for a coordinator to oversee all aspects of a comprehensive motorcycle safety program, provide vision for program expansion, serve as the key motorcycle safety contact for the State and represent motorcyclist interests in the development of the State’s comprehensive highway safety plan, the Crash Outcome Data Evaluation System (CODES) advisory group and the Traffic Records Coordinating Committee (TRCC). Enact an amendment to the CRST Act establishing a fixed percentage of annual funding for PI&E relating to motorcycle safety issues such as impaired riding, proper licensing, motorist awareness, and conspicuity. Develop in-depth multivariate problem identification for motorcycle crashes to better define the crash problems and target audiences.


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Ensure that motorcycle safety countermeasures identified in the annual highway safety plan are adequately funded and address priority motorcycle safety problems. Ensure that motorcycle safety is addressed in IDOT planning of all roadway projects.


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1-B. Evaluation and Research Advisory Each State should evaluate motorcycle safety program activities regularly to ensure that programs are effective and scarce resources are allocated appropriately. Evaluations should: • use available traffic records and other injury control data systems effectively; • be included in initial program planning; and • be conducted regularly and used to guide future program activities. Status The State’s motor vehicle crash database is housed in IDOT. The driver’s license and registration data are housed in the Office of the Secretary of State. The Illinois Department of Public Health (IDPH) is responsible for several major hospital/trauma databases. It was reported that IDOT has revitalized the Traffic Records Coordinating Committee (TRCC) which has participation from these key agencies. The TRCC is focusing on the timeliness, quality and availability of data. Timeliness and accuracy of crash reports continue to improve in Illinois, and have been significantly enhanced since more complete crash data has been secured from the city of Chicago. The State is working on several projects that will assist with these data issues including electronic crash reporting, geographic information systems (GIS) capabilities and improved access for end-users. There is a good working relationship between the IDOT and IDPH. In fact, IDOT provides funding support to IDPH/Emergency Medical Services for Children to develop and maintain a web-based query system that supports access to the following five statewide databases:

• IDOT Traffic Crash Report Database (1994 – 2003) • IDPH Mortality Database (1994 – 2002) • IDPH Prehospital Run Database (1996 – 2001) • IDPH Trauma Registry Database (1994 – 2003) • IL Hospital & HealthSystems Association Hospital Discharge Database (1994 –

2002)


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Illinois has been awarded a CODES project grant and the project team is finalizing memoranda of understanding with the data owner agencies. Key State databases will be linked to determine crash outcomes in Illinois. This will provide valuable information to the SHSO which can be used to make decisions about motorcycle safety programming. Motor vehicle crash data and analysis are provided through IDOT’s Bureau of Data and Data Services. The State’s Annual Crash Facts & Statistics publication is compiled by this bureau which also provides crash data on the department’s Web site as well as numerous statistical reports throughout the year. Motorcycle crash data is on the department’s Web site at www.dot.il.gov/trafficsafety/crashreports.html. As stated earlier, the SHSO’s evaluation staff provides some additional analysis of these data to further identify the nature and extent of the motorcycle safety problem. For over 10 years the staff has collected observational surveys of motorcycle helmet use in concert with observational safety belt surveys conducted each year. These surveys are not random sample surveys and can not be weighted, but they do show a snapshot of helmet use in Illinois. The SHSO’s increased commitment to motorcycle safety will no doubt result in richer data analysis to aid in programming decisions. The CRSTP database is maintained by IDOT CRSTP staff. They collect and analyze statewide training, instructor, student and incident (training course crash) data. Individual student training records are maintained at the four regional CRSTP Centers. While rider training information is available, it is not currently linked to motorcycle crash and injury data. IDOT’s traffic safety evaluator indicated that this linkage is possible. Recommendations Design standardized report formats which analyze key motorcycle safety issues for annual distribution to key decision-makers, program personnel and safety partners. Establish and publicize motorcycle-relevant rates using registered motorcycles, licensed operators, motorcycle crashes as a percentage of all crashes, etc., to establish baselines for analyzing improvements in motorcycle crash reduction efforts in the absence of Vehicle Miles Traveled (VMT) for motorcycles.


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Initiate a study to link student training records to driver history files to determine the effects of rider training on traffic violations and crash involvement. Determine evaluation protocol prior to implementation of all PI&E campaigns and conduct evaluations on all campaigns to determine their effectiveness.


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2. MOTORCYCLE PERSONAL PROTECTIVE EQUIPMENT Personal protective equipment is the most effective method of reducing the risk of injury or death when motorcyclists are involved in traffic crashes. All States should enact laws requiring all motorcycle operators and passengers to wear motorcycle helmets (universal helmet use laws). Helmet use has been identified as the single most important factor in the reduction and prevention of head injury in motorcycle crashes. Over-the-ankle boots, full-fingered leather gloves, long pants, and long-sleeve shirts or durable jackets offer motorcyclists protection from the environment and from injury in case of a crash. Additionally, bright-colored clothing and retro-reflective materials enhance a motorcyclist's visibility to other motorists in traffic. States should encourage use of these items in their helmet use and other motorcycle safety campaigns. Advisory Each State should encourage motorcycle operators and passengers to use the following protective equipment: • Motorcycle helmets (which should be required by law) • Proper clothing including gloves, boots, long pants, and a durable long-sleeved

jacket • Eye and face protection Status Illinois repealed their helmet law in 1969. Several attempts have been made to enact a helmet law since that time, but have failed. Reports from IDOT Characteristics of Motorcyclists Involved in Illinois Fatal Crashes 1999 – 2004 show an average of 128 deaths per year over the six year period. Of the 128 deaths, 94 individuals were not wearing helmets. Twenty were wearing helmets and in 14 cases helmet use was unknown. Several Illinois agencies and organizations, including government agencies, law enforcement agencies and injury prevention professionals expressed strong support for a helmet law. Some Illinois motorcycle organizations and motorcycle dealers would not support a helmet law. While some would openly lobby against legislation, others would not openly oppose legislation. These organizations and dealers agree on the benefits


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of protective equipment including helmets. While they encourage helmet use, they believe that the decision to wear protective gear should be left up to the individual. Although the encouragement is well intended, it is not effective. The most recent helmet use survey by IDOT shows an overall helmet usage rate of only 31.6 percent. In the absence of a helmet law, Illinois encourages motorcycle riders to wear approved helmets and protective clothing in the Motorcycle Operator Manual (MOM) and through the training process. The assessment team recognizes that a universal helmet law is a politically sensitive issue in Illinois. However, data from Federal and State studies show the positive affect of helmet laws on helmet use. In the absence of a helmet law, aggressive action should be taken to increase helmet use by educating riders and the public on their benefits. As an example, ABATE of Illinois is currently including protective gear messages in their presentations to high school driver education classes. Illinois law (ILCS 5/11-1404) states that “The operator of a motorcycle, motor driven cycle, or motorized pedalcycle and every passenger thereon shall be protected by glasses, goggles or a transparent shield.” Glasses, goggles and transparent shields are defined in the section. The benefits of each are listed in the MOM. Recommendations Create a task force of representatives from the insurance industry, law enforcement, medical professionals, motorcycle dealers, motorcycle organizations, safety advocates and other interested entities to explore ways to increase the use of helmets and protective clothing. Continue to seek support for passage of a universal helmet law. Encourage the usage of all protective equipment by motorcyclists through PI&E campaigns. Design and conduct annual observational surveys to determine use of helmets and other protective gear.


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3. MOTORCYCLE OPERATOR LICENSING Motor vehicle administrators are in a unique position to address highway safety problems. They routinely come in contact with every operator on a formal basis. Motorcycle safety program administrators should work cooperatively with their counterparts in the department of motor vehicles to ensure that motorcycle license procedures are efficient; that testing is effective in assessing motorcyclists' on-street riding abilities and knowledge of motorcycle operation; and that information about the State's motorcycle safety countermeasures is made available to the public. Advisory Each State should have legislation that, at a minimum, requires special testing for motorcyclists and a separate license classification for motorcyclists. Each State should promote public awareness of motorcycle licensing requirements and have a system in place requiring the following: • Motorcycle operator’s manual • Motorcycle licensing examination including knowledge and skills testing • License examiner training • Motorcycle license endorsement • Motorcycle license renewal requirements • Learner’s permit for a period of 90 days with only one renewal per applicant • Penalties for violating motorcycle licensing requirements Status Illinois has a two-tiered motorcycle licensing system. The Illinois Vehicle Code defines the following:

5/1-145.001 “A motor driven cycle as every motorcycle and every motor scooter with less that 150 cubic centimeter piston displacement including motorized pedalcycles.” 5/1-147 “A motorcycle as every motor vehicle having a seat or saddle for the use of the rider and designed to travel on no more than 3 wheels in contact with the ground, but excluding a tractor.”


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5/1-148.2 “A motorized pedalcycle is a motor-driven cycle whose speed attainable in one mile is 30 mph or less, which is equipped with a motor that produces 2 brake horsepower or less. If an internal combustion engine is used, the displacement shall not exceed 50 cubic centimeter displacement and the power drive system shall not require the operator to shift gears.” An endorsement is not required for these vehicles.

The Illinois SOS is responsible for issuance of driver licenses. There are 115 locations throughout the State that offer knowledge and skill tests and issue instructional permits and driver licenses. An additional two locations do not offer skill testing due to space limitations. All locations but one provide services five days a week. Applicants 18 years or older may apply for a 12-month instruction permit to operate either a motor-driven cycle or motorcycle. The permit entitles the holder to three attempts to pass the skill test; all may be taken on the same day. If the individual fails all three tests, they may pay the fee for another permit and start the process again. However, an individual who commits a dangerous act as defined by the SOS may not retest on the same day. Permits can be renewed indefinitely. Applicants 18 or older seeking a motorcycle endorsement (“L” for motor driven cycles 150 cc or less or “M” for motorcycles over 150 cc) must hold a valid Illinois driver license, pass a vision test and successfully complete knowledge and skill tests specific to motorcycles. Applicants age 16 or 17 have two choices to obtain a 24-month motorcycle permit. For an “L” permit (150 cc or less) the applicant must:

• Possess a valid driver license • Pass the vision test • Pass the knowledge test

For an “M” permit (over 150 cc) the applicant must:

• Complete all of the above • Be enrolled in a motorcycle basic rider course

“L” or “M” is printed on the instruction permit indicating whether the holder is restricted to a motor driven cycle or motorcycle. The restrictions are that the permit holder may “drive only during daylight hours and under the direct supervision of a licensed motor


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driven cycle or motorcycle operator 21 years or older with at least one year of driving experience”. “M” permit holders may only be supervised by an individual with an “M” endorsement. No explanation of the restrictions is on the instruction permit. The State relies solely on training of law enforcement officers or others who need to know what these restrictions are. Additionally, these instruction permits can be renewed repeatedly. After completing the CRSTP course, 16 and 17 year olds must return to the examination station, present the course completion card and pass the skill test. The CRSTP waiver program does not apply as it does to all other individuals who successfully complete the rider training course. The Illinois MOM was developed by the MSF and adopted by the State as the official study guide for applicants preparing for a motorcycle or motor driven cycle endorsement or instruction permit. A 15-question knowledge test is generated by the computer from a bank of 59 questions taken from the Illinois MOM. Applicants must successfully answer 12 of the 15 questions to pass the test. The skill test known as the Alternate-Motorcycle Operator Skill Test (AL-MOST) was developed by the MSF and is administered throughout the State. The test exercises are generally conducted in a parking lot and are easily administered correctly. The test was designed for any size motorcycle or motor driven cycle and has proven to be an excellent evaluation of basic riding skills. The SOS uses on-the-job training for their new driver examiners. New examiners are paired with experienced examiners who train them on the job. This process takes approximately 30 days. The trainees are evaluated on a regular basis during that time. Trainees deemed capable of administering tests uniformly are certified by the SOS. After this process is completed, new examiners are trained similarly to administer the AL-MOST. This process may take 10 to 14 work days depending on the individual. SOS examiners are not certified by the National Examiner Certification Board. Today in Illinois, after meeting SOS requirements, a 16 or 17 year old can already legally ride any size motorcycle. In response to low demand manufacturers are building few “L” class motorcycles. Presenters consistently stressed that because of these two dynamics, Illinois’ two-tier motorcycle licensing system has become antiquated. The State should recognize this and convert to a provisional licensing system. This will allow new riders to enter the transportation system gradually while gaining more experience.


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A provisional system should include:

• Required completion of a CRSTP basic course • A zero tolerance policy for alcohol • A zero tolerance policy for traffic violations • Penalties for violation of motorcycle licensing requirements • Restrictions on carrying passengers • Operation during daylight hours only • Restrictions on freeway operation

Recommendations Enact legislation to establish a provisional licensing system for motorcycles. Enact legislation to reduce the period for which an instruction permit is valid to six months for motorcycle or motor driven cycle applicants and limit the number of renewals. Add language to the instruction permits listing the restrictions. Match motorcycle registration files with motorcycle license files to identify operators who are not properly licensed, then notify unlicensed individuals with information on how and why to become properly licensed.


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4. MOTORCYCLE RIDER EDUCATION AND TRAINING Rider education is an essential component of a statewide motorcycle safety program and requires specialized training by qualified instructors. Motorcycle rider education should be readily available to all new and experienced motorcyclists who wish to participate. While nearly all States have some type of rider training component, only a small percentage of riders actually receive training, and many programs report long waiting lists. If rider education courses are not easily available to new riders, they will often bypass formal training and operate their motorcycles without the knowledge and skills needed to do so safely. It is important that all States, including those just beginning motorcycle safety programs as well as those with established programs, offer rider training courses in sufficient numbers to meet the needs of the motorcycle riding population in the State. Advisory The State agency should provide a comprehensive plan for stable and consistent rider education programs in which motorcyclists have access to training programs conducted by State-approved personnel at facilities that are appropriately equipped and staffed and adequately funded. Each State motorcycle rider education program should also provide for: • Use of an approved curriculum • Reasonable availability of courses to meet demand • Instructor training and certification • Incentives for successful course completion • Quality control of the program • Program evaluation Status The Illinois CRSTP has a long-held national reputation for quality rider education and training. The program has been constrained from expanding into a comprehensive motorcycle safety effort because the enabling legislation makes no provision for the funds to be used for any purpose other than offering training courses. The legislation further directs that no fee be charged for the course other than a “nominal” registration fee (currently $20.00) which “shall be refunded at the completion of the course.”


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Currently the training program is delivered through four regional centers: Northern Illinois University, DeKalb; University of Illinois, Champaign; Illinois State University, Normal and Southern Illinois University, Carbondale. Each center is responsible for delivering rider training programs within the counties assigned to its particular region. Upon successful completion of a Basic RiderCourse (BRC), students are issued a completion card that allows the Illinois SOS driver license examiner to waive the written and skill tests for all graduates who are 18 years of age or older. Individuals 16 or 17 years old must complete the BRC and take the SOS written and skill tests to be eligible for a class “M” motorcycle endorsement. Sixteen- and 17-year-olds who do not complete and pass a BRC are not eligible for a class “M” endorsement until their 18th birthday. The regional centers provide liability insurance that covers all staff and facilities, IDOT, owners of the respective training sites, students and participating motorcycle dealers. Minimum coverage includes: bodily injury and property damage liability, $2,000,000 aggregate coverage, and excess medical coverage in the amount of $10,000 per person. CRSTP maintains files on all students who register for a course. The student data includes: complete contact information, birth date, sex, driver license number, license class, completion status, cc displacement of the training motorcycle ridden, riding and written test scores, instructors who taught the course and a unique identification number that tracks the student, the course attended, and the course date. This number is the identifier that is used on the completion card issued to the student. All fields on the student registration form are collected and maintained in IDOT’s database with access limited to CRSTP program managers. Hard copies of the student records are filed at the individual regional center offices. According to information delivered to the team, records are available in most cases from the very first classes taught at the regional centers. This wealth of historical data could prove to be quite beneficial to IDOT in evaluating training efforts and establishing long-term goals. IDOT is charged with responsibility for selecting an approved curriculum and makes that selection with input from the regional center staffs, all of whom have extensive experience in motorcycle training. The training curricula currently in use are the MSF’s BRC and Experienced RiderCourse (ERC). Several of the regional center staff, most of


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whom have had experience with at least three renditions of the MSF basic curricula, expressed concerns regarding the newest BRC. Most commonly cited were MSF’s failure to revise and refine their product, a virtual absence of instructor and trainer resource and support materials and a minimum of useful communication between the MSF and end-users. Information provided to the team indicates that MSF’s training standards, guidelines and expectations are perceived to be vague, and have led to significant quality control problems and conflicts among instructors. The experience level of the instructors has not been a contributing factor to the conflicts. Both new and veteran instructors have expressed concern. With current budget and manpower constraints, the program’s ability to effectively monitor courses and maintain quality and consistency in delivery has been harmed. Regional center staff also cited ongoing administrative concerns in manpower and morale issues caused by the adoption of the BRC. The CRSTP manual does make provisions for curriculum modifications to “improve the safety, effectiveness or efficiency of the training”. Project coordinators have the option to modify the approved curricula on an experimental basis. Such courses must be taught under the direct supervision of the coordinator. Proposed modifications must be reported in writing to IDOT, submitted for review to all regional centers and submitted to the (Licensing and SOS-Related Tasks) Curriculum Committee, at least two weeks prior to being implemented. When questioned regarding potential curriculum reviews or revisions, regional training staff indicated that no formal process for such evaluations has been established. The two CRSTP Coordinators within the IDOT Regulations and Training Unit are each responsible for oversight of two of the regional training centers. As well as managing the training center contracts and handling associated administrative duties, the coordinators also have responsibility for hands-on quality control of training program delivery. They visit classes to monitor training and to identify needed improvements in curriculum, equipment, safety, instructional personnel and scheduling. In most cases the visit is unannounced. The purpose of the visit is to inspect the sites and assist the instructors in providing a consistent and safe curriculum that meets CRSTP standards. An evaluation form is used and the results are typically sent to the regional coordinator, who forwards them to the instructors. If corrective action is required, it is the responsibility of the regional coordinator to ensure that proper corrective action is taken. It was clear from regional training coordinator responses that there is no consistent system for tracking quality control, instructor issues and problem resolution. The regional coordinators and their assistants (all Chief Instructors), also monitor courses and provide additional quality control for the program.


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IDOT staff also monitors instructor preparation courses to ensure that the Chief Instructors are properly delivering the approved curriculum materials. Instructors are required to attend at least one of the yearly regional updates to review curriculum and procedural issues. IDOT coordinators annually review and evaluate the monitoring reports for instructor errors or procedural problems and forward lists of topics to the regional directors for inclusion in the update training. Like many Northern-tier States, Illinois experiences high seasonal demand for rider training. The highest demand for classes is in the spring, a situation that is exacerbated by regional personnel’s task of bringing the fleet motorcycles out of winter storage and preparing the individual sites for the training season. Many of the site preparation tasks require good weather (range facilities can’t be repainted during rain or snow storms). With the limited staff available in each region it may take as much as 10 weeks for a regional center to bring all its training sites into operation. This takes place while prospective students are clamoring to enroll in classes. The CRSTP currently has 49 training sites, 60 separate ranges and over 1,000 training motorcycles. The enormous logistical burden could be considerably eased by hiring additional, temporary employees. Another potential, but only partial, solution is to secure facilities that could serve as winter training sites, such as armories and warehouses. Despite the fact that the funding appropriation has been frozen at $2.6 million since 2002, the CRSTP has continuously increased the number of students trained each year, a tribute to the efficiency and dedication of the operations staff. Even with heavy early-season demand for training, CRSTP had less than five percent unfilled capacity in 2004 classes. Most recent numbers indicate that training increased by nearly 20 percent, from 10,052 students in 2002 to 12,454 students in 2004. During that same period motorcycle sales in Illinois nearly doubled, from 59,864 to 111,942. Since the demand for training follows the general trend of motorcycle sales, it’s easy to see that the training program can’t possibly meet the public’s need under the current budget constraints. Regional training center staff has estimated that training could potentially be increased by about 20 percent with the current physical resources if funding were appropriated to conduct additional classes. Beyond that, there is a desperate need to expand the number of training facilities to meet the growing need for motorcycle safety training. Although Illinois has about 382 instructors statewide, presenters indicated a constant need for additional instructors. Instructors are trained by the individual regions and required to meet MSF national certification standards. Additionally instructors are


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required to maintain first aid certification and attend a yearly update to remain certified to teach. Section II, Part 1.0 of the CRSTP administration manual details requirements for instructors as well as range aides. In addition to instructor certification records kept at IDOT, the individual regional offices keep detailed records of each instructor’s teaching activity. Instructors are provided an instructor’s manual by the regional office. Each region holds an end-of-year gathering to recognize exceptional performance and/or outstanding contributions by individuals or organizations, including instructor awards. Besides the normal attrition rate of instructors, other factors have come into play. First, the philosophy of the CRSTP administrators has been to compensate all staff equally throughout the State. Although financial compensation is not always a primary motivator for instructors, the current $16/hour wage is certainly far less attractive in a high cost of living area like Chicago than it is in rural areas of the State. Secondly, Harley-Davidson has begun offering their Rider’s Edge program in several high demand areas of Cook County. Although they have helped fill some of the training needs, Harley has not assisted with training any instructors in Illinois. Instead they have reportedly “scouted” the CRSTP instructor cadre and hired away (at a much higher wage) at least a dozen of the very best instructors. According to information the team received, Harley has sent several instructor candidates to regional programs to be trained. Only after these individuals were certified did it become apparent that they had no intention of teaching for CRSTP. The perception is that the Rider’s Edge program is intentionally misusing public resources to assist their commercial enterprise. The CRSTP manual includes a program evaluation section which provides for administrative evaluations and for evaluations of the program’s impact on crashes and injuries. The team received no indication that overall program evaluations have been conducted by IDOT. Since the CRSTP appropriation has been frozen, motorcycle-related fatalities have increased by 57 percent, training has increased by 19.3 percent, and revenue in the Fund has increased by 56 percent over the present budget appropriation. The team finds it particularly disturbing that the State has failed to appropriate additional funding for this program since the current balance in the Fund is $5,064,885 and it is clear there is a desperate need for increased training.


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Recommendations Increase the annual CRSTP appropriation to at least $3.5 million by July 1, 2006. Establish a protocol and timeline to conduct comprehensive annual program evaluations. Establish a five-year plan for program development that includes milestones to meet forecasted training demand. Develop a formal curriculum review and revision process. Develop and implement a formalized quality control system. Enable regional training centers to hire temporary, seasonal employees to expedite program start-up.


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5. MOTORCYCLE OPERATION UNDER THE INFLUENCE OF ALCOHOL OR OTHER DRUGS

Currently, all State highway safety agencies have impaired driving programs, but only a few State programs recognize that impaired motorcyclists should be included in a program to reduce alcohol- and drug-related traffic crashes. State and local traffic safety authorities should address the problem of impaired motorcycle operators in existing and future impaired driving programs. Programs developed to address impaired driving should focus on motorcycle operator impairment as a separate feature of the more general campaigns. Administrative and judicial penalties for impaired motorcyclists should be part of the State’s impaired-driving program. Advisory Each State should ensure that programs addressing drunk and drugged driving include a focus on motorcycles. This focus can be included in: • Community traffic safety programs and Safe Communities • Public information and education campaigns • Youth impaired driving programs • Law enforcement programs • Judge and prosecutor training programs • Anti-drunk and drugged driving organizations • College and school programs Status Bureau of Safety Data and Data Services statistics show that of the 157 motorcyclist fatalities, including passengers, in 2004, 66 involved alcohol. The percentage of alcohol involved fatalities has remained fairly constant over the past several years. Data from NHTSA/FARS for 2004 indicate that Illinois had a higher proportion of impaired motorcycle operators (35%) than the national average (27%). Clearly there is a need for specific programming to address impaired riding. Most presenters perceived impaired riding as a serious motorcycle issue yet there are minimal efforts underway to address the problem. IDOT has started an effort to raise awareness of the issue within the law enforcement community by obtaining and distributing 3,200 copies of The Detection of DWI Motorcyclists a NHTSA brochure and cue card to assist officers in detecting impaired motorcyclists. These were in such high demand that thousands are on order for


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distribution at the start of the spring 2006 riding season to local law enforcement. This indicates that a more specific plan for engaging the law enforcement community is needed. Some groups, such as the Gold Wing Road Riders Association (GWRRA) have policies of not sponsoring or endorsing events and programs that include alcohol consumption. This organization also will not allow members who have been drinking to ride with them. ABATE of Illinois has also begun to encourage “self-discipline” with year-round campaigns by local chapters and their members. They are also discouraging their chapters from having events at establishments that serve liquor. The Illinois State Police are distributing Motorcycle Safety Awareness brochures which include impaired rider and personal responsibility messages. Many materials produced by both IDOT and SOS address impaired driving and should incorporate motorcycle specific messaging. The team did not receive information regarding whether judges and prosecutors receive any special training to address the issue of impaired riding. Likewise, no information was presented about corporate or community traffic safety programs that educate the public about impaired riding. Traffic safety advocacy groups, youth impaired driving programs, anti-drunk and drugged driving programs and college and school programs were not represented at this assessment so we are not able to determine the extent of their activities and potential for partnership. Federal funding is available for impaired riding programs and current grant programs could be expanded to include impaired riding messages. Recommendations Design and implement a comprehensive impaired riding PI&E campaign. Integrate motorcycle messages into existing impaired driving grant programs. Use the law enforcement liaisons (LEL) to increase awareness within the law enforcement community regarding impaired riding issues and strategies.


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Develop an impaired riding strategic plan that can be incorporated into the State’s Comprehensive Highway Safety Plan. Establish communication between the IDOT Office of Public Affairs, Division of Traffic Safety and the SOS to coordinate impaired riding messages. Capitalize on the close university relationship of rider training centers by investigating on-campus outreach potential.


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6. MOTORCYCLE CONSPICUITY AND MOTORIST AWARENESS PROGRAMS Often motorists do not see motorcycles because of the small size of the motorcycle or lack of attention to traffic conditions. States should establish awareness campaigns to remind motorists to look for motorcycles and to review basic driving techniques that will increase motorists' awareness of other vehicles. Motorist awareness and rider conspicuity can be addressed in a variety of ways: public information and education campaigns supported by State and local highway safety organizations; inclusion in driver education programs (for motorists as well as motorcycle riders); State driver licensing manuals and testing programs; law enforcement awareness programs; and public service efforts of motorcycle organizations and dealerships. Advisory State motorcycle safety programs should emphasize the issues of rider conspicuity and motorists’ awareness of motorcycles. These programs should address • Daytime use of motorcycle lights • Brightly colored clothing and reflective materials for motorcycle riders • Motorcycle lane positioning • Reasons why motorists do not see motorcycles • Sharing the road Status Beyond information that promotes rider training, most of the public information produced by the State addresses conspicuity and motorist awareness. Nonetheless, many of the presenters noted an inherent lack of understanding, and at times real or perceived resentment, regarding sharing the road on the part of both riders and drivers. They urged the State to continue their outreach efforts and engage in more activities and campaigns that involve sharing the road. Much can be done to educate motorists about motorcycle awareness and safety issues, but there is also a need for riders to take responsibility for their own safety. The more they understand the many reasons motorists do not see them the better they can protect themselves. Riders must take control of their own well-being by learning how to be more conspicuous, where to position themselves while riding alone or in groups and actions they should take in response to various scenarios and road conditions.


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The fact that roughly half of the motorcycle-related fatalities in Illinois over the last five years have been caused by crashes involving a second vehicle, usually a car or truck, underscores the need for more targeted communications and outreach to both motorist and rider populations. IDOT holds an annual Windshield Wash Project where volunteer groups give out rider education materials at interstate rest areas and talk to drivers about rider awareness. IDOT also produces a Share the Road brochure targeted to drivers that is popular with and broadly distributed by rider groups. The Illinois State Police produces and distributes a Motorcycle Safety Awareness brochure that focuses on personal responsibility for riders but could be expanded to include more information about conspicuity. Rider groups also support the State by speaking to community organizations, distributing brochures, bumper stickers and other printed materials, holding motorist awareness bike shows, setting up bike displays at shopping centers, organizing windshield washes, leaving handouts with doctors, retailers, banks, etc. and attending high visibility events and rallies. GWRRA, ABATE and many others have played a strong role in the State’s motorist and rider outreach activities. GWRRA Motorist Awareness Division’s (MAD) comprehensive Ride Aware! information addresses all aspects of sharing the road including the daytime use of motorcycle lights and headlight modulators, wearing bright clothing and using reflective gear and equipment. ABATE reaches new and inexperienced drivers through statewide high school driver education classes. The program is so well respected it’s been added to the Illinois State Board of Education Resource Guide for teachers. The program is endorsed by the Illinois State Police and numerous local law enforcement agencies. Recommendations Develop and implement a comprehensive and coordinated statewide plan to address both conspicuity and motorist awareness. Create more compelling and targeted PI&E materials for each audience and simplify the messages.


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Increase use of billboards, public service announcements and coordinate with the media to amplify outreach efforts. Coordinate more closely with the Illinois Motorcycle Dealer Association, manufacturers, motorcycle-related businesses and others to sponsor PI&E materials and campaigns.


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7. PUBLIC INFORMATION AND EDUCATION EFFORTS PI&E efforts should serve to enhance motorcyclists’ involvement in the training program, increase awareness and knowledge of motorcycle safety issues, and prevent crashes and injury. States should encourage the use of advisory committees or task forces comprised of those affected by or impacting, the motorcycle safety program to obtain input into the program's PI&E efforts. Advisory States should develop and implement motorcycle safety PI&E programs to reduce crashes, risk of injury or death, and resulting medical, legal, and other costs. State motorcycle safety programs should: • Have a statewide plan for coordination of motorcycle safety PI&E activities • Work with other traffic safety programs to increase licensing, reduce impaired riding,

and encourage community participation in motorcycle safety campaigns Status There is no formal motorcycle safety PI&E program in the State of Illinois. As noted earlier, State law requires all CRSTP efforts be focused on rider education and training. Other than the MOM, distributed through the SOS, there is little information on motorcycle safety available to riders. There have been some ad hoc outreach efforts through IDOT’s Division of Traffic Safety and the SOS to reduce the number of motorcycle crashes throughout the State, but there is no formal coordination between these two government agencies. There has also been an excellent effort on the part of the data gathering and reporting entities within the State to capture motorcycle data to support and justify focus on specific target audiences within the riding population. This includes older, impaired and non-helmet wearing riders. Formal coordination does exist among IDOT, NHTSA and health related organizations through their advisory committees and data distribution networks.


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Minimal staff and budgetary resources have been directed toward the development and dissemination of public information that uses this data despite the fact that nearly 10 percent of statewide traffic safety fatalities are motorcycle-related. Furthermore, there are:

• No advisory committees or task forces that provide input and advise the State on motorcycle-specific PI&E efforts.

• No statewide campaigns developed to address motorcycle safety issues. • No impaired driving campaigns that include impaired riding or motorcycle safety

on any level, even though Section 402 and related Federal funds can be used to that end.

• Very few outreach efforts targeted to riders over the age of 45 or those that do not wear helmets, even though the data indicate there is a need for PI&E in these areas.

• Many riders so resistant to the helmet law that they are reluctant to promote their use so as not to be thought of as advocates for the law.

Miscellaneous materials produced through various offices and programs within IDOT are sporadically distributed throughout the regional rider training and law enforcement organizations. Sometimes they are distributed in response to phoned-in requests for information. They include:

• Share the Road brochure • The Detection of DWI Motorcyclists letter, video, brochure, and cue card • Free Rider Training brochure • Rider Training Instructors Needed brochure

None of these materials have been focus group tested. Nor have there been any effectiveness evaluations conducted, it is clear, however, the capability exists in the Division of Traffic Safety as nineteen other traffic safety messages were tested as part of the program’s 2004 evaluation. None of them were specifically motorcycle-related. Many of the PI&E efforts that do take place occur at the local level through community and advocacy organizations. As part of these efforts:

• The Illinois Motorcycle Dealers’ Association distributes information at their meetings and through their newsletter when it is available. This channel is completely underused and is willing to distribute information.


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• Many rider groups report distributing impaired riding materials to their

memberships, usually at meetings and through Web sites and newsletters. They often distribute brochures, patches, T-shirts, and bumper stickers.

• The GWRRA distributes information and talks to riders and motorists at windshield washes. They have initiated proclamations to promote May as a Motorcycle Awareness Month and set up window and library displays.

• A significant proportion of the public outreach efforts are through high school driver education programs, this includes outreach programs on rider safety and conspicuity by ABATE and by rehabilitation professionals through Think First.

• Motorcycle dealers distribute information and material as they become available from IDOT, manufacturers, and rider groups.

The Division of Traffic Safety is implementing a comprehensive data program and sharing it across agencies and organizations and with the public. The resultant statistics can play a valuable role in identifying key target audiences and add powerful support for public motorcycle safety messages. Available data broadly distributed statewide includes:

• The annual Crash Facts & Statistics publication reports data on fatal motorcycle crashes and motorcycle helmet usage information

• Online daily motorcycle data updates including crash injury and fatality statistics • Motorcycle safety at a glance (cross-tabulated by alcohol and helmet use, age,

single- and multiple-vehicle designations, and impact of riding hazards) • Helmet usage and observational survey results • Online motorcycle data breakdown by geographic area (soon to be released)

The State works with media organizations regarding motorcycle safety issues particularly by providing them with statistics through the Bureau of Safety Data and Data Services and in response to key times of year when the motorcycle season opens. The media have reported this information primarily through newspaper articles, radio interviews and PSAs, and on long-format public affairs talk shows in less-populated media markets.


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Recommendations Develop a coordinated statewide plan for motorcycle safety and PI&E efforts. Encourage the use of full protective equipment by motorcyclists through PI&E campaigns. Use staff PI&E expertise to incorporate motorcycle safety messages into existing efforts whenever possible. Focus-test and evaluate campaigns for effectiveness as part of program evaluations conducted by IDOT. Encourage businesses and private organizations to participate in motorcycle safety PI&E campaigns. Promote alcohol-free and drug-free events and encourage alternative transportation to reduce impaired riding.


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CREDENTIALS OF TECHNICAL ASSISTANCE TEAM LORRIE J. LAING Administrator, Governor’s Highway Safety Office Ohio Department of Public Safety 1970 West Broad Street Columbus, Ohio 43218-2081 Phone: 614-466-3250 Fax: 614-728-8330 E-mail: [email protected] EXPERIENCE Administrator, Governor’s Highway Safety Office Ohio Department of Public Safety (1997 – present) State Coordinator, Ohio Motorcyclist Enrichment Program Ohio Department of Public Safety (1987 – 1997) Program Specialist & State Coordinator, Motorcycle Operator Training Program Texas Department of Public Safety (1983 –1984 and 1984 – 1987 respectively) Coordinator/Assistant Director, Motorcycle Safety Program Illinois State University (1978 – 1983) ORGANIZATIONS/AFFILIATIONS First Ladies’ Initiative to Keep Children Alcohol-Free Committee Member (2001 - present) Governor’s Highway Safety Association (1997 – present) Region V Representative (2000, 2001, 2003), Secretary (2004 - present) National Child Passenger Safety Board, State Highway Safety Office Representative (2002 – 2004) Motorcycle Safety Foundation Instructor, 1977 – 1980, Chief Instructor 1980 - 2000 National Association of State Motorcycle Safety Administrators (1984 – 1997) Past Chairperson (1988 – 1990), Regional Representative (multiple terms)


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EILEEN F. MICHAELS Public Information and Education Consultant/President Adison, Inc. 2 Fifth Avenue, Suite 11U New York, NY 10011 Phone: 212-777-2266 E-mail: [email protected] EXPERIENCE

• Public Information and Education Consultant/President, Adison, Inc. (1999-present)

• Technical Assessment Team Member, Michigan Motorcycle Safety Program Assessment (2005)

• Qualitative Research Specialist/Co-Author, Intersection Safety Countermeasures Assessment, Federal Highway Administration/Battelle (2004-2005)

• Project Director, Tri-State Traffic Safety Partners, Communications Outreach and Support Services Contract, NHTSA Region II (2001-2003)

• Technical Assessment Team Member, West Virginia Motorcycle Safety Program Assessment (1999)

• Executive Vice President and Principal, Lisboa Public Relations,Inc. (1986 - 1999)

• Contract Manager, Multi-Year Support for Traffic Safety Outreach Activities, NHTSA Office of Public and Constituent Affairs (1992-1997)

• Contract Manager, Formative Evaluation Rural Safety Belt Use, NHTSA (1996-1998)

• Contract Manager, Formative Evaluation Child Passenger Safety, NHTSA (1994 - 1996)

EDUCATION/ORGANIZATIONS/AFFILIATIONS

• National Association for Women in Communications (1997 – present) • Washington Women in Public Relations (1994 - 1999) • Riva Focus Group Training Certification (1996) • George Washington University, MBA (1997)


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ROBERT E. REICHENBERG 8860 Junipero Avenue Atascadero, CA 93422 Phone: 805-461-3827 E-mail: [email protected] EXPERIENCE • President, Streetmasters Motorcycle Workshops, Inc. (2004 – present) • Associate Producer, Safety/Riding Techniques Editor/Motorcycle Digest (1998 -

present) • Safety/Riding Techniques Columnist, News Editor/Cruising Rider Magazine (1995 -

2003) • Contributor, Road Test Editor/Motorcycle Consumer News Magazine (1994 - 1999) • Manager, Program Services, Motorcycle Safety Foundation, (1995 - 1997) • Director, Lead Instructor, Motorcycle Safety Foundation Chief Instructor Training

Program (1991 - 1997) • Manager, Training and Development, Motorcycle Safety Foundation (1991 - 1995) • Manager, Education, Motorcycle Safety Foundation (1989 - 1991) • Manager, Instructor Training, ATV Safety Institute, (1988) • Program Specialist, Texas Department of Public Safety, Motorcycle Operator

Training Section (1986 - 1987) • Publisher/Editor; Crawford Clipper, Harrison Sun, Northwest Nebraska Post (1979 -

1986) ORGANIZATIONS/APPOINTMENTS • American Motorcyclist Association (1984 - present) • Los Guajolotes (1991 – present)


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TOM J. TENNERY 7506 N. Gregory Road Yukon, OK 73099 405-350-3048 405-850-5410 E-mail: [email protected] EXPERIENCE

• Oklahoma State Coordinator – Commercial Motor Vehicle Safety Act (1988 – 1992)

• Director of Licensing (1988 -1992) • Chief Examiner (1980 - 1988) • Past Chairman Examiner Certification Board

ORGANIZATIONS/AFFILIATIONS

• Examiner Training Specialist – Motorcycle Safety Foundation (1986 – 2000) • Graduate of AAMVA Chief Examiner Training Course – Northwestern Traffic

Institute • Graduate of FBI National Academy – Quantico, VA • Major – Oklahoma Highway Patrol, retired


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ASSESSMENT AGENDA State of Illinois Motorcycle Safety Program Assessment

October 24 – 28, 2005

Monday, October 24, 2005 8 – 9:30 a.m. Mike Stout, Director Division of Traffic Safety Illinois Department of Transportation Bob Young, Manager Regulations and Training Unit Division of Traffic Safety Illinois Department of Transportation 9:40 – 10:30 a.m. Gary Farley, South Division Liaison Driver Services Department Illinois Secretary of State 10:45 – 11:50 a.m. Toney E. Buzick Motorist Awareness Division Coordinator/Asst. District Director Illinois District, Gold Wing Road Riders Association Steve Hatten Senior Educator Illinois District, Gold Wing Road Riders Association 11:55 a.m. -1 p.m. Evelyn Lyons, Manager Emergency Medical Services for Children

Illinois Dept. of Public Health/Div. of Emergency Medical Services Jennifer Martin, Injury Prevention Coordinator Illinois Dept. of Public Health/Div. of Injury and Violence Prevention 1:55 – 3 p.m. Russ Bills, Motorcycle Retailer Watseka Suzuki Honda


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3:10 – 3:55 p.m. Paulette Pinkham Safety and Education Coordinator A.B.A.T.E. of Illinois 4 – 5:05 p.m. Leonard E. Stallworth, District Commander Illinois State Police

Tuesday, October 25, 2005 8 – 9:10 a.m. Karl Kegel, President Illinois Motorcycle Dealers Association Mary Ellen Kegel, Director Illinois Motorcycle Dealers Association 9:15 – 10 a.m. Mehdi Nassirpour, Ph.D., Chief Research & Evaluation Illinois Department of Transportation 10 – 11 a.m. John Brandon Motorcycle Program Coordinator Division of Traffic Safety Illinois Department of Transportation 11 a.m. – Noon Scott Slavin, Sergeant Chicago Police Department Noon – 1 p.m. Lunch 1 – 2:15 p.m. Bob Ritter, Project Director Motorcycle Safety Project Northern Illinois University 2:20 – 3:05 p.m. Thomas J. Esposito, M.D., M.P.H. Chief Section of Trauma Surgery Loyola University Medical Center


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3:15 – 4 p.m. Dan Karl, R.N., B.A. Community Educator/Staff R.N. Injury Prevention Program Rehabilitation Institute of Chicago 4:05 – 5:15 p.m. C. Vernon Hanks, Project Director Motorcycle Safety Project Illinois State University 7 – 8:15 p.m. Barb Heitka, Motorcycle Safety Instructor UOI, SIUC, ISU MRP

Wednesday, October 26, 2005 8 – 9:30 a.m. John Sudlow, Project Coordinator Motorcycle Rider Program University of Illinois 9:30 – 10:30 a.m. Mary Ann Paulis, Accident Information Manager Division of Traffic Safety Illinois Department of Transportation Joyce Schroeder, Accident Studies Manager Division of Traffic Safety Illinois Department of Transportation 10:40 – Noon Mike Ashner, Coordinator Motorcycle Rider Program Southern Illinois University Noon – 1:30 p.m. Joe Lindsay, Motorcycle Program Coordinator Division of Traffic Safety Illinois Department of Transportation


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Glossary ACS American Community Survey IDOT Illinois Department of Transportation IVC Illinois Vehicle Code GR Governor’s Representative SHSO State Highway Safety Office TRCC Traffic Records Coordinating Council IDPH Illinois Department of Public Health GIS Geographic Information System CRSTP Cycle Rider Safety Training Program MOM Motorcycle Operator Manual MSF Motorcycle Safety Foundation BRC Basic RiderCourse GWRRA Gold Wing Road Riders Association MAD Motorist Awareness Division NHTSA National Highway Traffic Safety Administration ABATE A Brotherhood Aimed Toward Education LEL Law Enforcement Liaison FFY Federal Fiscal Year CODES Crash Outcome Data Evaluation System VMT Vehicle Miles Traveled ERC Experienced RiderCourse

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