69787 East Asia and Pacific Region China Road Safety Engagement Strategy Interim Report Report prepared by: Tony Bliss Road Safety Advisor, World Bank Jeanne Breen Road safety management specialist Eric Howard Road safety management specialist July 2011 Contents 1. Introduction 2. Key findings 2.1 Capacity issues 2.2 Guiding principles 2.3 Operational framework 3. Project concept 3.1 Project objectives 3.2 Project components  Project leadership, management and advisory groups o Leadership and management groups o Expert advisory group  Innovative interventions in demonstration corridors and areas o Infrastructure safety o Safety behaviors o Post-crash safety o Monitoring and evaluation  Innovative policy reviews o Heavy vehicle safety o Legislative frameworks for infrastructure design, operation and management o Driver licensing o Vehicle safety standards o Work-related safety o School-based road safety management and education  International cooperation and leadership o Professional networks o Research and development 3.3 Detailed design requirements 4. Next steps Annexes Annex 1: Organizations and experts consulted Annex 2: Review method Annex 3: Candidate cities and provinces for demonstration projects 2 East Asia and Pacific Region China Road Safety Engagement Strategy Interim Report 1. Introduction The World Bank has been engaged in road safety with the Government of China (GOC) for the past 25 years and both partners have experienced the evolution in road safety practices and priorities arising from rapid motorization and shifting management philosophies which have become increasingly transparent and focused on results. Over this period the World Bank has raised its road safety management profile to address the growing public health crisis resulting from deteriorating road safety performance in low and middle-income countries and the development impacts on the poor and those thrust into poverty as a consequence of road crashes. China’s international road safety profile has also been rising with its impressive achievements in road infrastructure provision and rapid motorization – tied to its sustained high-growth path – and the sheer magnitude of its anticipated future road deaths and injuries, unless measures are taken to prevent them. Awareness of this situation has been further raised by the proclamation of the Decade of Action for Road Safety 2011 – 2020 with the ambitious goal of reducing global fatalities by 50% that will depend on sustained high performance from China alone, if the goal is to be achieved. The World Bank’s road safety partnership with the GOC is maturing at a time when a deeper awareness of the negative development impacts of road crashes in low and middle-income countries coincides with the shift in road safety management policies and practices in leading high-income countries which are becoming focused on the elimination of road deaths and serious injuries, rather than accepting them as human failure and the inevitable price of economic progress. This shift in results focus is also aligned with other sustainable development initiatives addressing environmental, energy and public health goals, which present significant opportunities to capture the co-benefits of harmonized initiatives. For these reasons the World Bank and GOC agreed to review the situation in China and prepare a new road safety engagement strategy. The proposed strategy aims to facilitate an accelerated transfer of road safety knowledge and scaling up of investment at national, provincial and city levels to rapidly improve China’s road safety performance, with an emphasis on strengthening national lead agency functions and multisectoral coordination arrangements. It also aims to promote China’s regional and global leadership role over the coming decade and draw upon the innovative services of international partners through the World Bank’s global networks and road safety investment experience. The objectives of the proposed engagement strategy were endorsed at a national forum with senior GOC officials and international and Chinese road safety experts and agreement was reached on the need to prepare a detailed operational framework for its implementation.1 1 Deng F (2010). East Asia and Pacific Region. China Road Safety Engagement Strategy Forum. Meeting Note, World Bank Office, Beijing, China. 3 Following the national forum consultations were held with GOC officials and road safety experts to confirm the forum’s findings and agreements. Discussions centered on issues critical to the preparation of an operational framework that addressed the scope and content of the engagement strategy, including the proposed demonstration projects and related selection criteria for participating regions, provinces and cities. The need for a designated agency to lead and coordinate the delivery of activities under the new engagement strategy was also highlighted. Several candidate agencies were considered and in particular the State Administration for Work Safety (SAWS) was identified as being well placed and ready to take responsibility for this task. Further consultations with key agencies and experts were then held to systematically specify the scope and content of the proposed demonstration projects and policy reviews. Proposed objectives for the new engagement strategy and road safety priorities were considered in depth and refined to reach a clear view on the way forward. This report summarizes the review findings and presents them in an operational framework specified in the form of a project concept encompassing all activities proposed under the new engagement strategy. It then outlines the steps to be taken to finalize the project concept before detailed preparation for its implementation can commence. Annex 1 lists organizations and experts consulted and Annex 2 summarizes the method used to review the scope and content of the new engagement strategy. 2. Key findings The national forum and subsequent consultations with senior GOC officials and road safety experts generated a candid and informed assessment of road safety management capacity issues in China and a recognition by all participants that the new engagement strategy offered significant opportunities to address them. A broad-based consensus was reached on capacity issues to be addressed by the new engagement strategy and guiding principles for its implementation. 2.1 Capacity issues It was agreed that the new engagement strategy should:  Strengthen road safety leadership and coordination at national, provincial and city levels. Institutional leadership and coordination of road safety in China are constrained by current institutional arrangements that are focused on individual agency performance and a lack of clarity around agency responsibilities in situations where there are overlapping roles such as in the area of assuring the safety of infrastructure provision and operation. This situation is further aggravated by the absence of well-defined metrics specifying agency service delivery 4 requirements. These problems are well recognized by the agencies concerned and a stronger shared focus on road safety results at all levels of government is being called for. The absence of this focus is evident in the current fragmentation of activities and lack of an overarching performance management framework that allows for the tracking of results across participating agencies and the private and community sectors. Strong institutional leadership is recognized as being crucial to success and the creation of multisectoral management processes to achieve this is viewed as the most vital and valuable activity to be addressed by the new engagement strategy. A central concern is how to achieve a more ‘joined up’ approach with simultaneous ‘top down’ and ‘bottom up’ planning and implementation processes, from the national level down to the provinces and cities, and from the cities and provinces back up to the national level.  Target the unique road safety problems of mixed traffic/mixed speed road environments. All parties consulted stressed that the new engagement strategy should be tailored to the unique road safety problems being experienced on China’s roads and the diverse economic, topographic and climatic conditions found in such a vast country. It should be noted that the generic characteristics of best practice road safety management systems allow for their universal application in all countries, irrespective of country development status or road safety performance. However, there are indeed some aspects of China’s current road safety performance that merit special attention. Road crashes have replaced suicide as the leading cause of death from injury and have increased from a rate of 9.8 per 100,000 people in 1991 to 20.3 per 100,000 people in 2008. Road deaths and injuries present a serious threat to the healthy development of young children in China. Higher death rates are experienced by males (around 30 deaths per 100,000 people) and in rural areas (around 25 per 100,000 people). Road crashes are the leading cause of death in China among the 15 – 29 and 30 – 34 age groups.2 Data analyses provided by the Chinese experts assisting the preparation of the engagement strategy highlighted the issues faced by vulnerable road users and the higher burden of death and injury carried by certain road types. Road users outside of motor vehicles suffered around 70% of crash fatalities and injuries, with over 50% of victims being pedestrians and motorcycle drivers and passengers.3 While it is anticipated that the numbers of car drivers and passengers killed and injured will increase with rising motorization, this high proportion of vulnerable road users gives immediate cause for concern and improving their safety must be a high priority. 2 Chinese Center for Disease Control and Prevention. Overview of Road Safety in China, Bloomberg Road Safety in 10 Countries Meeting, Beijing, March 22, 2010. 3 Chen Y (2011). Response to information requirements for capacity review on China Road Safety Program, Transportation Research Center, Beijing Industrial University, Beijing, China. 5 Further data are available to illustrate how road user risks vary by road type, terrain and economic conditions and these will be used to shape the priorities of the new engagement strategy. However, it is significant that like elsewhere in the world there is a high concentration of road deaths and injuries on a relatively small proportion of the road network where traffic volumes and vehicle speeds are high. Available data indicates that about 50% of all road fatalities in China are on Class I & II highways and urban arterials which comprise about 15% of the nation’s highway and urban road network. In the case of highways alone, Class I & II highways account for about 50% of rural road fatalities on just 9% of the highway network. These data illustrate that considerable opportunity exists for the new engagement strategy to achieve rapid improvement in road safety performance using efficient and effective safety measures to target high-risk sections of the road network carrying a disproportionate burden of deaths and injuries.  Improve awareness of and compliance with road safety standards and rules. Running in parallel with the recognition of the disproportionate death and injury burden being incurred by more vulnerable road users in China is the growing and legitimate concern that with all road users – whether viewed as perpetrators or victims of road trauma –there is an evident lack of awareness of the high risks they are facing on the roads and their unacceptable consequences. In hindsight this is understandable when the rapid rate of motorization in China is taken into account. High-speed modern vehicles and new roads are rolling out at historically unprecedented rates and people are simply unprepared for this dramatic shift in mobility patterns and modes and their attendant dangers. It is well known that novice drivers are inherently more at risk than experienced drivers, and China is overwhelmed with novices gaining access to modern vehicles and high-speed roads for the first time in their family and peer group history. Likewise people in the vicinity of the new road environments have had little previous exposure to the traffic volumes and vehicle speeds they are encountering. This alone is a formula for disaster. While it is true that many road deaths and injuries in China could be avoided if safety behaviors improved, it must also be acknowledged that much of this unnecessary trauma is inevitable when road users inside and outside the vehicle are inexperienced and remain ignorant of the life threatening risks they actually face. Conventional safety standards and rules set for well-enforced, relatively safe roads in many high-income country contexts do not cater for the degree of human vulnerability inherent in the use of China’s road network. For example, there is clearly an issue with infrastructure junction designs in China that unfairly (in safety terms) pit vulnerable road users against higher speed, higher mass vehicles, with obvious and disastrous consequences. 6 Only the paradigmatic shift evident in the emerging Safe System approach promotes design and operational solutions that could in principle address such inherent dangers in the Chinese road transport system4. The new engagement strategy endorses this emerging paradigm because it intrinsically offers more protective infrastructure safety and speed management solutions, vehicles that better protect both occupants and vulnerable road users outside the vehicle, and improved emergency response services for victims. The Safe System approach puts an emphasis on a shared responsibility by system providers and road users alike to ensure the safe use of the road network. This in turn underpins the universal call for the new engagement strategy to raise greater road user awareness of the inherent dangers faced when using the roads and the need to comply with related safety standards and rules. Raising this awareness also serves to inculcate a greater demand for a safer road system from its users and promotes a stronger sense of road operator and vehicle manufacturer accountability for network safety.  Enhance road safety data quality and road safety data sharing. Many review participants highlighted the growing demand in China for better quality road safety data, as they recognized that current data are not equal to the challenges of the road safety management task to be faced over the coming decade. There is a strong call for the regular and systematic matching of police crash data with health sector data, to create improved estimates of road deaths and injuries and assist performance management processes and measures aimed at reducing them. Free and open sharing of police crash data across agencies, researchers and the wider community is the norm in best practice, high-income countries. These countries long ago recognized the value and importance of data sharing, providing such data is stripped of personal details that might violate related forensic and prosecution processes or individual privacy rights. Easy access to official quality assured data is vital to the successful management of road safety performance and there is a high expectation that the new engagement strategy will create opportunities to help achieve this on a sustainable basis. Related to this is a growing demand for intermediate outcomes data that cover performance measures such as network speeds, safety belt and helmet wearing rates and the safety rating of vehicles and roads, as these data are vital to the efficient and effective management of road network safety. Interest is also being expressed in conducting ‘naturalistic driving studies’ such as those being carried out by the Virginia Tech Transportation Institute in Virginia, USA, which investigate in-vehicle driving behavior and related crash risks in real-time road conflicts. This state-of-the-art approach could propel China to the cutting edge of innovative safety data collection and analysis and bring new and valuable insights to the unique traffic safety conditions encountered by Chinese road users and system providers. 4 OECD, International Transport Forum (2008). Towards Zero. Ambitious Road Safety Targets and the Safe System Approach, Joint Transport Research Centre, OECD/ITF, Paris. 7  Monitor and evaluate road safety performance more systematically. Related to the issues of improved road safety data quality and efficient and effective targeting of road safety measures is the universal call by review participants for the more systematic monitoring and evaluation of road safety performance. A clear expectation has been expressed that the new engagement strategy will advance the development and application of data-informed, ex-post evaluations to ensure that successful outcomes can be translated into practical guidelines for wider application across the country. It is noteworthy that China’s emerging road safety research institutes are well placed and willing to lead this important task.  Review strategic policy priorities that offer significant safety gains. Ensuring the continuous improvement of China’s road safety policy framework was an underlying theme of the review discussions. Interest was expressed in benchmarking Chinese initiatives with international best practice to take advantage of what has already been learned to be efficient and effective and where appropriate adapting it to the Chinese context. Of particular interest were safety issues of a more universal nature that were applicable across the diverse economic, topographic and climatic conditions encountered in China, such as regulation of heavy motor vehicles; legislative frameworks for road infrastructure design, operation and management; driver licensing regimes; vehicle safety standards; work-related safety; and school-based road safety management and education. Upstream legislation, policy and standards reviews were seen as instrumental in promoting good practices countrywide, including reviews of the Road Traffic Safety Law (2004), road safety standards and specifications and the road safety audit manual. It was agreed that the new engagement strategy would include the promotion of strategic policy reviews of these issues and others that may be identified. Wherever relevant it was felt that these reviews should be integrated with related measures taken to target safety improvements in high-risk sections of the road network. It was also recognized that in some circumstances successful measures piloted in high-risk road sections would contribute to the formulation of improved policies and related practices for wider application nationwide.  Accelerate global knowledge transfer and scientific innovation. Linked with the strong interest in international benchmarking was a call for the acceleration of global and regional knowledge transfer and learning through existing and emerging professional networks and related research and development initiatives. Capturing the full benefits of international scientific innovation in road safety was seen as crucial to China being able to avoid going down the fatalistic pathway taken by high-income countries during the 20th century with its unacceptable road carnage, especially given China’s unprecedented rates of motorization and road user vulnerability. Linked to this prescient concern was a strong interest expressed by China’s road safety research institutes for the new engagement 8 strategy to facilitate better opportunities for international cooperation in the delivery of the planned national, provincial and city activities. Peer-to-peer knowledge sharing was seen as vital to better connecting China’s professional road safety community with international best practice, to create mutually beneficial learning opportunities and a two-way flow of information and innovative practices. While it is evident that such initiatives have already been taking place – albeit in a piecemeal fashion –there was a strong sense that the new engagement strategy could catalyze sustainable knowledge building partnerships on a scale that ensured their impact could be more strongly felt nationwide and subsequently on a regional and global basis. 2.2 Guiding principles It was also agreed that measures taken by the new engagement strategy to address the identified capacity issues should be:  Cooperative Related to the call for a stronger focus on shared results and a more ‘joined up’ approach was an expressed desire by all those consulted that the new engagement strategy be a cooperative endeavor, where all participating agencies and experts work together as partners to maximize the benefits to be achieved by reducing the trauma of road crashes.  Incremental While there was a universal commitment to the call for accelerated knowledge transfer and scientific innovation, there was also a clearly expressed view that the new engagement strategy be implemented on an incremental ‘step by step’ basis. It was recognized that significant changes in practice would take time to be professionally and politically absorbed and that this process should be respected if ultimately sustainable practices were to be built.  Representative In line with the recognition that China’s unique road safety problems should be a priority focus for the new engagement strategy, a clear view was expressed that it should ensure that related initiatives were representative of the diverse regional, provincial and city contexts to be found in China and take proper account of government, business and community interests.  Inclusive It was also strongly felt that the new engagement strategy should be inclusive of all road users and vehicle types, motorized and non-motorized, and their representatives. The emphasis on inclusiveness especially recognized the disproportionate road trauma burden being carried by vulnerable road users and associated poverty impacts. 9  Sustainable As forcefully expressed at the national forum and reinforced in ongoing consultations, there was a consensus view that the engagement strategy should be designed to be sustainable, to ensure ongoing effectiveness. This will require both adequate resourcing for the duration of the planned initiatives and a core focus on capacity strengthening to engender the knowledge, skills and resources that will be required to carry the initiatives on in the longer term.  Integrated A strong call was made for the new engagement strategy to align its road safety priorities with other higher priority sustainable development goals, especially those for urban areas, to capture the associated co-benefits of integrated initiatives. For example, the provision of safer infrastructure facilities to promote increased walking and cycling and measures to reduce vehicle speeds will also result in less greenhouse gas emissions and local air pollution, greater energy security, and improved physical wellbeing. This call for integration included placing an emphasis on the potential for intelligent transportation technologies to help achieve such policy synergies.  Results oriented A pragmatic refrain evident throughout the consultative process was that the new engagement strategy should be focused on the achievement of measurable road safety results. Saving lives and avoiding serious injuries were seen as the highest priorities. This view was most strongly expressed by the research community who were keen to direct their efforts to this task, while recognizing that less directed research was also a critical success factor in sustaining continuous performance improvements in the longer term.  Replicable Linked to the results oriented focus was the strongly shared view that demonstration projects undertaken by the new engagement strategy should be designed and managed with a view to being able to replicate successful delivery and outcomes in comparable provincial and city road environments countrywide. 2.3 Operational framework A remarkable consensus was achieved in setting out the desired scope and content of the new engagement strategy. Proposed objectives and road safety priorities were considered in depth and refined to reach a clear view on the way forward. In the next section the identified capacity issues and principles agreed upon to guide the measures taken to address them are presented in an operational framework specified in the form of a project concept that encompasses and integrates all the activities proposed under the new engagement strategy. 10 The project concept includes a set of demonstration projects that will each be of considerable scale and could be viewed separately as sub-projects. However, for the purposes of ensuring a more ‘joined up’ approach and simultaneous ‘top down’ and ‘bottom up’ planning and implementation processes, an overarching operational framework is presented. In this regard it is vital that the new engagement strategy be managed as an integrated project, albeit with several large demonstration components being implemented around the country, and the project concept has been prepared accordingly. It should also be noted that the overall sequencing of the project preparation process is crucial to successful implementation. The first priority is to prepare a project concept based on the findings of the review process, which is the focus of this interim report. This concept should be sufficiently comprehensive to outline all components, partnerships and targeted results. The second and third priorities are to reach consensus on the project management arrangements and the monitoring and evaluation procedures. A detailed project design can be prepared once agreement is reached on the overall project concept, the results it is trying to achieve and how these will be managed and measured. 3. Project concept The following project concept is presented in terms of its objectives, components and detailed design requirements. Participating agency roles at the national level and some potential provincial and city candidates for associated demonstration projects are identified. 3.1 Project objectives The project objectives are to: 1. Strengthen multisectoral road safety management capacity in China at national, provincial and city levels, with particular emphasis on the lead agency role and related coordination arrangements. 2. Achieve quick and improved road safety results in demonstration provinces and cities with innovative Safe System interventions in high-risk corridors and urban areas. 3. Conduct policy and legislative reviews of safety priorities that offer significant opportunities for road safety innovation and improved results. 4. Enhance international cooperation and leadership in road safety management. These four objectives are interrelated and mutually reinforcing, with primacy being given to the first objective which is concerned with the achievement of a more ‘joined up’ approach and simultaneous ‘top down’ and ‘bottom up’ planning and implementation processes, to build a shared focus on results at all levels of government countrywide. 11 3.2 Project components Four project components have been specified to reflect the project objectives, as follows:  Project leadership, management and advisory groups (objective 1) The creation of shared multisectoral leadership and management processes is viewed as the most vital and valuable activity to be addressed by the new engagement strategy. To achieve this it was recognized at the outset of the review that there was a need for a designated agency to lead and coordinate the delivery of activities proposed under the new engagement strategy and various options were considered for this role. After extensive discussions with officials the State Administration for Work Safety (SAWS) emerged as a suitable and acceptable candidate for several key reasons. Road safety is included within their legal mandate and they have already demonstrated leadership in this arena, they are well staffed with road safety professionals at the technical and policy levels drawing on the resources of the Road Safety Research Centre (RIOH) from the Ministry of Transport, they have demonstrated a strong implementation capacity, and most importantly they have indicated a willingness to take on the proposed role. o Project leadership and management groups It is proposed that at the national level the State Administration for Work Safety (SAWS) be formally designated and resourced to lead and coordinate the overall delivery of activities under the new engagement strategy. To support the lead agency role played by SAWS it is also proposed that a Steering Committee and a Working Group be formally established and resourced to carry out their brief. Table 1 sets out the suggested agency and research institute membership of these groups, for further consideration and development. o Expert advisory group It is proposed that at the national level an Expert Advisory Group be formally established and resourced to provide project preparation and implementation support to the national project management groups and the provincial and city project management groups created once the locations of the demonstration corridors and areas are decided (see next component). It is suggested that the membership of this group should include the team of leading Chinese experts who have provided advisory support and guidance to the preparation of the new engagement strategy so far, as set out in Table 2. The advisory group should also include international experts where appropriate. 12 Table 1: Project management groups Steering Committee Engagement Strategy Functions Responsible Department(s) Working Group State Administration for  Lead agency role Second Division of SAWS Project management office appointed by the Work Safety  Chair of Steering Committee and SAWS, led by Research Institute of Highway Working Group  Investigation of large-scale crashes  Supervision of heavy vehicle freight and passenger safety  Work-related safety Ministry of Public  Road safety legislation Traffic Administration Bureau MOPS Traffic Management Science and Security  Road safety enforcement Research Institute (Wuxi Institute)  Crash reporting and data systems Traffic Safety Research Institute  Driver licensing and penalty points  Vehicle registration and inspection  Safety audits  Road safety education  Road safety research Ministry of  Highway safety management Highway Bureau Research Institute of Highway Transportation  Highway safety standards and guidelines Transportation Division RIOH Transport Consultants Ltd  Highway safety assessment  Heavy vehicle overloading  Land use/transportation planning  Professional driver training and licensing  Road safety education  Carriage of hazardous goods  Road safety research Ministry of Health  Emergency response and treatment Health and Emergency Office To be appointed by MOH  Injury control and prevention programs Diseases Prevention and China Center for Disease Control  Road fatality and injury data Control Bureau 13 surveillance systems  Road safety promotion campaigns Ministry of Education  School road safety education Basic Education Department Chinese National Institute for Educational  School bus safety Research  Safe school management systems Tongji University and other universities  Road safety promotion campaigns Ministry of Science and  Intelligent transport systems Division of High Technology ITS China Technology  Road safety research Tongji University Ministry of Industry and  Vehicle design standards and Division of Equipment Industry China NCAP Information Technology safety rating regimes (Automobile Section) Ministry of Agriculture  Training and testing of agricultural Division for Management of China Agricultural Machinery Safety vehicle drivers Agricultural Machinery Newspaper Press  Safety training of agricultural vehicle operators Central Station for Technical Development  Safety supervision of agricultural and Replication of Agricultural Machinery vehicle operations Central Station on Experiment and  Road safety promotion campaigns Identification of Agricultural Machinery Ministry of Housing  Land use/transportation planning Division of Standards and Standards and Norms Research Institute and Urban – Rural  Urban road design standards Norms Development Urban Development Division Technical Center for Urban Transportation (Transportation Section) and Engineering 14 Table 2: Expert advisory group Member University/Institute Agency affiliations Professor Lu Huapu Tsinghu University Ministry of Public Security, (Chairman) Institute of Transport Engineering Ministry of Construction, Advisory Group for Beijing Government Professor Fang Shouen Tongji University Ministry of Science and Technology (Deputy Secretary General) Professor Hu Jiangbi Beijing University of Technology Transportation Research Center Professor Sun Xiaoduan University of Louisiana Ministry of Transport Professor Zou Nan Shandong University NDRC International experts (to be advised)  Innovative interventions in demonstration corridors and areas (objective 2) Considerable opportunity exists for the new engagement strategy to achieve rapid improvement in China’s road safety performance by implementing efficient and effective safety interventions to target high-risk road network sections that carry a disproportionate burden of deaths and injuries. In this regard, Class I & II highways and urban arterial roads are suitable candidates, as are roads on city edges where urban functions transition to rural. Annex 3 tabulates candidate cities and provinces identified so far for the demonstration projects, categorized in accordance with socioeconomic conditions (developed and under- developed), terrain type (flat and mountainous) and road network priorities (urban, rural and city edge). This candidate list will require further consideration and refinement before making final selections. There was a general consensus that relevant selection criteria for candidate cities and provinces also included research capacity and data availability, political will, sustainable funding, replicability, ease of coordination, regional representativeness, the potential for significant results and the presence of typical high-risk road and victim types. Multisectoral interventions will be designed and implemented in the selected demonstration corridors and areas, as follows: o Infrastructure safety It is proposed that systematic safety inspections of demonstration highways and urban roads be conducted to identify safety infrastructure improvement programs, with attention being paid to the safety of vulnerable road users and related road environs such as linear villages, roadside hazards and road junctions. The use of International Road Assessment Programme (iRAP) tools is recommended for this process, to pilot the development of what could ultimately be launched as China Road Assessment 15 Programme (‘ChinaRAP’) tools and protocols, to join the family of global road assessment programs like the United States Road Assessment Program (USRAP), the European Road Assessment Programme (EuroRAP) and Australian Road Assessment Program (AusRAP). This proposed initiative is discussed further in the international cooperation and leadership component below. As part of this project sub-component, the new road safety audit tools currently under development in China would also be piloted, evaluated and improved. o Safety behaviors It is proposed that enhanced traffic enforcement campaigns be designed and implemented in the demonstration corridors and areas to develop more effective general deterrence based measures to achieve improved compliance with vehicle and road user standards and rules. Measures will include speed management, alcohol testing, safety belts and child restraints, motorcycle helmets, heavy vehicle safety regulation, day-time running lights, children’s safety and improved crash reporting. Social marketing campaigns to improve traffic safety awareness and compliance with safety standards and rules will be designed and implemented to support the enhanced traffic enforcement in the demonstration corridors and areas. These campaigns will target all relevant parties and use all appropriate media, taking into account local literacy levels and language needs. Media will include local television, radio, newspapers, movie theaters, billboards and posters. Opportunities will also be found to use local cultural events and outlets to disseminate key messages. Enhanced work-based, school-based and community-based education programs will be designed and implemented in the demonstration corridors and areas. These will be integrated with the traffic enforcement and social marketing campaigns. o Post-crash safety It is proposed that enhanced post-crash safety services be designed and implemented in the demonstration corridors and areas to improve the survivability of road crash victims and their longer-term recovery prospects. These services will include first responder training programs for those aside from local health workers most likely to attend crash scenes (e.g. taxi drivers, local business people and traffic police) and more effective emergency response systems and rehabilitation programs. o Monitoring and evaluation It is proposed that systematic monitoring and evaluation procedures be designed and developed to assess safety performance in the demonstration corridors and areas. Performance measures should take the form of final outcomes, intermediate outcomes and outputs, as presented in Table 3. 16 Table 3: Road safety performance measures Category Examples of possible measures Risk exposure  Traffic volumes by vehicle and road user type Final safety  Deaths and injuries recorded by police outcomes  Hospital data for road deaths and injuries recorded by health authorities  Other sources of death and injury registration Intermediate  Average vehicle speeds by road type, summer and winter safety  Front and back seat safety belt wearing rates, driver and passengers outcomes  Motor cycle helmet wearing rates, driver and pillion  Drug impairment levels  Skid resistance of road surfaces  Road infrastructure crash safety ratings (risk and protection scores)  Vehicle compliance with testing standards  Vehicle crash safety ratings  Target audience recall and assessed relevance of publicity campaign messages  Community attitudes to road safety  Average emergency medical services response times Intervention  Number of safety engineering treatments per section of road network outputs  Hours of police enforcement targeting high risk behaviors  Numbers of police infringement notices issued  Media frequency and reach of publicity campaigns supporting police enforcement  Hours of school-based education activities  Volume of driver training, testing and licensing activities  Volume of vehicles tested  Number of emergency medical services responses to road network crashes Reliable baseline estimates of current safety performance in the demonstration corridors and areas (and control corridors and areas) will be required and this will require the combining of available police and health sector data. Attention will also be paid to preparing performance measures, where relevant, to estimate related co-benefits of improved road safety performance including measures of emissions impacting local air quality and greenhouse gas production, energy efficiency and physical wellbeing.  Innovative policy reviews (objective 3) The new engagement strategy can contribute to the continuous improvement of China’s road safety policy framework by benchmarking Chinese initiatives with international best practice, to take advantage of what has already been learned to be efficient and effective and where appropriate adapting it to the Chinese context. Policy reviews will be designed and implemented in the following areas: 17 o Heavy vehicle safety It is proposed that a systematic review of international best practice heavy vehicle safety regimes be conducted, with a view to assessing longer-term policy options for China. Bus and truck safety are major concerns and while considerable effort is being put into managing the associated problems there is room for improvement. Improving bus safety is a high priority issue with continuing large numbers of crashes resulting in multiple deaths. Overloading of heavy trucks is proving to be unmanageable in the short term, with safety being subordinated to the economic interests of trucking companies that would be put out of business if their unsafe loads were banned from the roads. In these circumstances it is important to take a longer-term perspective and assess options available to bring the management of the heavy vehicle industry under control and into line with the safety standards and performance evident in best practice high-income countries. Opportunities for innovative transport companies to use the new ISO 39001 Road Traffic Safety Management Systems standard to improve the safety of their heavy vehicle operations will be assessed (refer also to work-related safety below). It is anticipated that the draft standard will be published in August 2011 and the final draft by the end of 2012. o Legislative frameworks for infrastructure design, operation and management It is proposed that a systematic review of existing legislation governing the design, operation and management of road infrastructure be undertaken to assess the priority given to road user safety and related highway agency roles and responsibilities and accountability for safety performance. Special attention should be paid the requirements for safe road designs to enhance their protective qualities for vulnerable road users and the related use of safety audit and safety rating tools. o Driver licensing It is proposed that a systematic review of driver licensing regimes in best practice countries be conducted, to assess their applicability to China. Special attention should be paid to innovations in graduated driver licensing systems and the safety benefits that could be anticipated from their introduction, given China’s rapid rate of motorization and associated high preponderance of novice drivers. o Vehicle safety standards It is proposed that a systematic review of international best practice vehicle safety regimes be conducted, to assess the long-term benefits to China in terms of lives saved and serious injuries avoided that could be anticipated by moving as rapidly as possible to world best vehicle safety standards, safety rating regimes and protocols. 18 The review should also assess the gains resulting from a shift to world best practice in terms of China’s improved competitive advantage in international vehicle markets, given its growing global ascendency as a vehicle manufacturing and exporting nation. Assessing the potential for the application of best practice in-vehicle pedestrian safety features and further innovation in this area should also be a high priority, given the high proportion of pedestrian safety deaths in China and other emerging vehicle markets in low and middle-income countries. o Work-related safety It is proposed that a review be undertaken of international best practice in work- related road safety initiatives, to assess their applicability to Chinese private and public sector organizations that have high staff exposure to road travel and related road safety risks. Potential opportunities to use the new ISO 39001 Road Traffic Safety Management Systems standard to help improve organizational staff safety should be identified. o School-based road safety management and education It is proposed that a systematic review of international best practice in school-based road safety management and education be conducted. The review of management systems to secure the safety of school day-to-day operations should include the safe operation of school bus services and again potential opportunities to use the new ISO 39001 Road Traffic Safety Management Systems standard should be identified. The review of best practice school-based education should pay particular attention to innovations in curriculum design and assessments of learning effectiveness.  International cooperation and leadership (objective 4) A strong interest was expressed by China’s emerging road safety research institutes for the new engagement strategy to facilitate opportunities for international cooperation and leadership in the delivery of the planned national, provincial and city activities. Initiatives will be designed and implemented to accelerate global and regional knowledge transfer and learning through existing and emerging professional networks and related research and development programs: o Professional networks It is proposed that the new engagement strategy will include building strategic relationships with the International Road Policing Organization (RoadPOL) and the International Road Traffic Accident Database Group (IRTAD), to support related initiatives in the demonstration corridors and areas and associated strengthening of road safety management capacity. The resulting professional networks built would support the strengthening of leadership and operational capacity in national, provincial and city traffic police agencies, and the building of sustainable road crash data systems respectively. 19 Opportunities should also be sought through the new engagement strategy to create a professional network of international Safe System experts to keep abreast of developments in leading countries such as Sweden, the Netherlands and Australia. o Research and development It is proposed that the new engagement strategy implement a road infrastructure safety research and development program in partnership with the International Road Assessment Programme (iRAP). As recommended above, iRAP tools could be used for the conduct of systematic safety inspections in the project demonstration corridors. The application and evaluation of these tools would be undertaken with a long-term focus on building local capacity, ownership and eventually the implementation a national ‘ChinaRAP’ initiative supported by iRAP and its global network of partners and experts in over 70 active countries. It is proposed that the new engagement strategy also implement a program of naturalistic driving studies in collaboration with suitable global partners in the USA and Europe and ideally including provinces and cities with project demonstration corridors and areas, to investigate in-vehicle driving behavior and related crash risks. Opportunities for global and regional collaboration in ITS safety programs should also be sought, to support the design and implementation of ITS safety interventions in the project demonstration corridors and areas. For example, this could include innovative measures to improve safety for vulnerable road users, intelligent speed adaptation (ISA) and ‘alcolocks’ for public transport and freight vehicles. The proposed review of the potential use of the new ISO 39001 Road Traffic Safety Management Systems standard in public and business sector settings in China (see above: heavy vehicle safety, work-related safety and school-based safety management) also offers opportunities for global and regional collaboration. China is a partner in the development of this international standard and the new engagement strategy could provide a suitable platform to take an early lead in its implementation. Other opportunities for international cooperation and leadership will become more evident at the detailed project design stage. Like the project objectives, these four project components are interrelated and mutually reinforcing and the inter-linkages between them will require clear specification in the detailed project design process. The first component manages and directs the remaining three components and the last component supports the first three. There are also interrelationships between the second and third components, with policy review findings supporting measures taken in the demonstration corridors and areas, where relevant, and vice versa. 20 3.3 Detailed design requirements Detailed design of the project will commence once agreement has been reached on the project concept and management and monitoring and evaluation arrangements for the targeted high-risk corridors and areas. Successful implementation of the new engagement strategy will hinge on designing demonstration projects that accelerate the transfer of road safety knowledge to participants, strengthen the capacity of participating partners and stakeholders, and rapidly produce improved road safety results that provide benchmark measures to dimension a roll-out program nationwide. As a priority the detailed project design will include a communications campaign to launch and sustain the new engagement strategy and promote its objectives by highlighting the tangible project components being implemented to achieve them. This campaign should be presented in the context of the GOC’s goal for a ‘Safe, Efficient and Convenient’ transport system as a practical example of the type of related road safety initiatives being taken in partnership with the wider community to benefit them and the nation. 4. Next steps and time table The following steps now need to be taken to finalize the project concept before its detailed preparation for implementation can commence. Activity Time Table/Status 1. Confirm the proposed project objectives. July 2011 2. Confirm the role of the State Administration of SAWS submitted official letter to Work Safety (SAWS) as the designated agency MOF in June 2011. MOF plans to to lead and coordinate the overall delivery of send official no-objection proposed project activities and specify its related response after confirming with functions and resourcing requirements. WB FY12 AAA list. 3. Confirm proposed project coordination September 2011, after the WB arrangements at the national level and specify FY12 AAA list has been membership of the Steering Committee, confirmed. MOF will send out Working Group and Expert Advisory Group. official letter to all participating ministries. 4. Confirm proposed project components and By end of August, following desired scope of regional, provincial and city Bank’s internal review and coverage. SM/CD clearance of Interim Report. 5. Specify an indicative time horizon and funding October 2011 package and related funding sources for the proposed project. 6. Confirm selection criteria for the proposed Done project demonstration corridors and areas. 21 7. Finalize selection of the proposed project By October 2011 demonstration corridors and areas. 8. Confirm all participating agencies and provincial By November 2011 and city project management arrangements for proposed project demonstration corridors and areas, and working relationships with proposed national coordination arrangements. 9. Finalize proposed project policy review By September 2011 priorities. 10. Confirm proposed project study tour priorities By September 2011 and related timetable. 11. Finalize proposed project international By January 2012 professional networks and research and development priorities. 12. Refine proposed project concept and prepare By January 2012 more detailed descriptions of project components with indicative funding requirements. 13. Seek official approval of the proposed project By February 2012 concept and related resourcing for its detailed preparation. 14. Prepare timetable and work plan for the detailed February 2012 preparation of the proposed project concept and its implementation. 22 Annex 1: Organizations and experts consulted Name Organization Title World Bank China Road Safety Engagement Strategy Launch Forum (November 16, 2010) Cui Peng Basic Industry Department, NDRC Principal Staff Meng Qiu Road Transport Department, MOT Deputy Director Yu Weiyue Basic Education Department, MOE Director Yan Jun Disease Control Bureau, MOH Director Qin Ru Disease Control Bureau, MOH Principal Staff Duan Leilei Disease Prevention and Control Centre Researcher Ma Lin Urban Transport Technology Centre, MOC Deputy Director Li Aimin Road Safety Research Centre, RIOH Director Tang Chengcheng Road Safety Research Centre, RIOH Deputy Director Liu Huixue Transport Consultants Ltd., RIOH Deputy Director Liu Liya Institute of Comprehensive Transport, NDRC Director Wang Guolin Institute of Comprehensive Transport, NDRC Staff Suo Husheng China Communications & Transportation Association Secretary General Jin Jing International Department, ITS Association Director Zhang Qing China Transport Planning & Design Institute Director Li Ping’an China Transport Planning & Design Institute Deputy Director Tang Boming Chongqing Jiaotong University Professor Lu Huapu Tsinghua University Professor Pei Yulong Harbin University of Technology Professor He Yulong Beijing University of Technology Professor Hu Jiangbi Beijing University of Technology Professor Chen Yanyan Beijing University of Technology Professor Yan Xuedong Beijing Jiaotong University Professor Shao Chunfu Beijing Jiaotong University Professor Zhang Dianye Xinan Jiaotong University Professor 23 World Bank China Road Safety Engagement Strategy Road Show (December 14-24, 2010) Tang Chengcheng Road Safety Research Centre, RIOH Deputy Director Jiao Chengwu Road Safety Research Centre, RIOH Researcher Jin Maoqing High-Technology R&D Centre, MOST Director Fang Shou’en Tongji University Professor Zhou Wei RIOH President Wang Qiang Traffic Management Bureau, MOPS Director Yu Weiyue Basic Education Department, MOE Director Gao Bo Basic Education Department, MOE Director Li Chunfeng Highway Bureau, MOT Director Zhang Huiyu Highway Bureau, MOT Staff Zhao Ruihua National Administration for Work Safety Deputy Director General He Yong Transport Consultants Ltd., RIOH President Han Su International Department, MOF Deputy Director World Bank China Road Safety Engagement Strategy Review (March 8 – April 14, 2011) Tang Chengcheng Road Safety Research Centre, RIOH Deputy Director Jiao Chengwu Road Safety Research Centre, RIOH Researcher Yu Weiyue Basic Education Department, MOE Director Gao Bo Basic Education Department, MOE Director Zhao Ruihua National Administration for Work Safety Deputy Director General He Yulong Beijing University of Technology Professor Hu Jiangbi Beijing University of Technology Professor Chen Yanyan Beijing University of Technology Professor Yan Xuedong Beijing Jiaotong University Professor Shao Chunfu Beijing Jiaotong University Professor He Yong Transport Consultants Ltd., RIOH President Yu Jie Shandong University Professor 24 Zou Nan Shandong University Professor Lu Huapu Tsinghua University Professor Fang Shou’en Tongji University Professor Yan Jun Disease Control Bureau, MOH Director Suo Husheng China Communications & Transportation Association Secretary General Li Chunfeng Highway Bureau, MOT Director Zhang Huiyu Highway Bureau, MOT Staff Liu Huixue Transport Consultants Ltd., RIOH Deputy Director Yang Feng Transport Consultants Ltd., RIOH Researcher Jia Jia Hua Jie International Consultancy Company Manager Min Huang Basic Industry Department, NDRC Director General 25 Annex 2: Review Method The review was conducted in accordance with the World Bank capacity review guidelines5 and the process specified for the preparation of the new World Bank road safety engagement strategy for China6. As agreed at the China Road Safety Engagement Strategy Forum on December 14, 2010 a key requirement of the review was the preparation of a detailed operational framework that addressed the required scope and content of potential demonstration projects and related regional, provincial and city selection criteria. The approach taken to address this requirement was to systematically identify safety priorities by road types (national, provincial and city) and regional characteristics and related opportunities for safety innovation, both in terms of improving the efficiency and effectiveness of safety interventions and strengthening institutional capacity to manage their implementation. This in turn determined the scope and content of potential projects and the provinces and cities that they could be implemented in. Key steps taken during the review process and related questions are set out below: Step 1: Identification of key safety priorities by road types Key road types were identified in terms of their safety performance, using available data to identify intervention priorities. Review participants described the administrative and technical classifications of roads in China and within available data constraints identified safety priorities and related measures for further review. Questions considered: 1. Are there data available to identify which city, provincial and national road types have the highest concentrations of crash deaths and injuries? 2. For each of the riskiest city, provincial and national road types what are the main types of vehicles involved in fatal and injury crashes (trucks, buses, private cars, motor cycles, farm vehicles etc)? 3. For each of the riskiest city, provincial and national road types who are the main victims in fatal and injury crashes (drivers, passengers, pedestrians, children etc)? 4. For each of the riskiest city, provincial and national road types does available crash data provide a good indication of the contributing factors to the crashes and related 5 Bliss T & Breen J (2009). Implementing the Recommendations of the World Report on Road Traffic Injury Prevention. Country guidelines for the Conduct of Road Safety Management Capacity Reviews and the Specification of Lead Agency Reforms, Investment Strategies and Safe System Projects, World Bank Global Road Safety Facility, Washington DC. 6 World Bank (2010). China: Preparation of Road Safety Engagement Strategy, World Bank Office, Beijing, China. 26 fatalities and injuries (speed, alcohol, fatigue, distracted driving, non wearing of safety belts and helmets, dangerous road features, vehicle defects etc)? 5. Is it possible to identify a sample of (ideally adjacent) cities and provinces that provide good examples of these types of road safety risks by city, provincial and national road types? Step 2: Identification of key regional differences Discussions during the engagement Forum indicated that there were some regional differences in safety performance and safety priorities by road type that should be accounted for and addressed. These differences were seen as resulting from differences in terrain, weather, economic development status, traffic composition, etc and the review assessed their significance in terms of priorities to be addressed in the proposed demonstration projects. Questions considered: 6. In terms of questions 1 – 5, are there significant regional differences that can be identified, and if so what and where are these? 7. Is it possible to identify a sample of regions (e.g. remote mountainous, less populated, lower income; versus accessible, densely populated, higher income) that best illustrate significant differences in road safety risks and performance by city, provincial and national road types? Step 3: For each road type, identification of opportunities for innovative safety interventions in terms of risks addressed, potential for technological enhancements and environmental and energy co-benefits, and related management strengthening. The data and insights generated by Steps 1 – 2 provided the basis for specifying road safety interventions to address the identified safety priorities by road type. Opportunities for technological innovation (e.g. ITS applications) and environmental co- benefits (e.g. cleaner air) and energy co-benefits (e.g. reduced rule consumption) were discussed, plus the potential for negative cross-impacts of environmental or energy policy initiatives (like larger truck configurations that are more energy-efficient but could potentially conflict with lower mass vehicles and other vulnerable road users). These issues will require further consideration during the detailed project design stage. Table 3 sets out a framework to address these issues. Agency management strengthening priorities will also need to be assessed during the detailed project design phase. 27 Questions considered: 8. For each of the riskiest city, provincial and national road types identified in questions 1 – 5 what are the most innovative safety interventions that could be implemented to help reduce crash deaths and injuries? 9. For each of the riskiest city, provincial and national road types identified in questions 1 – 5 what are the most innovative safety policy reviews that could be conducted to help reduce crash deaths and injuries? 10. For each of the innovative safety interventions and policy reviews identified in questions 8 – 9 which agency/agencies is/are responsible for: i. Setting the required safety performance measures in terms of standards and rules and compliance with them and desired results (results focus)? ii. Coordinating all related activities to achieve the desired results? iii. Legislating for all related activities to achieve the desired results? iv. Funding and allocating resources to all related activities to achieve the desired results? v. Promoting all related activities to achieve the desired focus on results? vi. Monitoring and evaluating all related activities to achieve the desired focus on results? vii. Research and development and knowledge transfer concerning all related activities to achieve the desired focus on results? 11. For each of the agencies responsible for innovative safety interventions and policy reviews identified in questions 10 i – vii what are their management strengthening priorities? Step 4: Specification of potential candidate cities and provinces for demonstration projects that would implement the identified innovative safety interventions and policy reviews and related management strengthening priorities. Question considered: 12. What are the appropriate selection criteria for candidate cities and provinces? 28 Table 3: Opportunities for innovative safety interventions and related management strengthening for each road type Opportunities for safety innovation Intervention Risks to addressed Technological Environmental and Management strengthening category enhancements energy co-benefits issues Planning, design, For example: For example: For example: Results focus operation and use of Safety behaviors Point to point Lower emissions Coordination the road network. speed cameras Unsafe road designs for Fuel economy Legislation vulnerable road users Intelligent speed Improved physical Funding and resource allocation adaptation (ISA) health from increased Promotion Intelligent road walking and cycling signs Monitoring and evaluation Research and development and Entry and exit of For example: For example: For example: knowledge transfer vehicles, drivers and Novice drivers Alcohol interlocks Lower emissions commercial operators to the road Overloaded vehicles GPS tracking Fuel economy network. systems Route control for Active safety hazardous goods features Recovery and For example: For example: For example: rehabilitation of First responders Emergency Lower emissions victims from the communications road network. Trauma systems Fuel economy Injury insurance 29 Annex 3: Candidate cities and provinces for demonstration projects Candidate cities and/or provinces Socioeconomic status Terrain Road network priorities for demonstration projects Developed Underdeveloped Flat Mountainous Urban City edge Rural Huainan (Anhui Province)      Chongqing (Sichuan Province)     Guangzhou (Guangdong Province)     Haerbin (Jilin Province)     Zhejiang Province      Hubei Province       Note: Other relevant selection criteria for candidate cities and provinces include research capacity and data availability, political will, sustainable funding, replicability, ease of coordination, regional representativeness, the potential for significant results and the presence of typical high-risk road and victim types. 30