A REVIEW OF ROAD SAFETY AUDIT PROCEDURES

Satish MVL' and CSRK Prasad?

ABSTRACT

Roads occupy a place of importance in any economy because of their unique

characteristics and distinctive features of connecting interior places, with its
network for carrying persons and goods. The increase in traffic brings out problems
of road traffic accidents. It has been estimated that over 3 lakh persons die and
100 to 150 lakh persons are injured every year in road accidents through out the
world. The aspect of road safety though aimed at in any design process however
does not cover all the requirements to ensure accident free sections in any road
network. ROAD SAFETY AUDIT (RSA) is a process in which experts attempt to
identify potentially dangerous features in the highway environment. "It is a formal
examination of an existing or future road or traffic project, in which an independent,
qualified team reports on the project's accident potential and safety performance"
(Austroads 2001). Road safety audits are an efficient, cost effective and proactive
approach to improving transportation safety. It is proved that RSA has the potential
to save lives and ultimately money. Initiated in Great Britain (1980) RSA is well
developed in countries like Australia, New Zealand, Canada, Denmark, Malaysia
and Singapore. It is at varying stages of implementation in other nations like
Thailand, India South Africa and Bangladesh.
Many countries had developed the road safety audit procedures. Even though the
main methodology adopted is almost same in all countries, they had developed
theirown checklists for RSA according tothe local conditions. It is aquestion why
all road authorities around the world are not practicing this process. Therefore
there is every need to develop its own RSA methodology in a country like India
where road traffic accidents are assuming epidemic proportions. This paper aims
to promote RSA by briefly describing it and outlining some RSA procedures
followed worldwide.

1. INTRODUCTION

1.1 Global Road Accident Fatalities

Roads occupy a place of importance in any economy because of their unique
characteristics and distinctive features of connecting interior places, with its
network for carrying persons and goods. Increase in traffic brings out problems of
road traffic accidents. It has been estimated that over 300000 persons die and 10
1.M.Tech (Transportation Engg) Student, NIT Warangal
2.Head, Transportation division, Dept of Civil Engg. NIT Warangal-506004
 I|-138 SATISH & PRASAD ON

to 15 million persons are injured every single year in road accidents through out
the world. India has the distinction of having more than 22 lakh kilometer of well
spread road network on which more than 400 lakh vehicles are moving daily. Atthe
same time Indian transport system is rated one of the most accident-prone system
With more than 14 accidents per thousand vehicles every year, compared to only 6
to 8 accidents per thousand vehicles in developed countries.
The problem of deaths and injury as a result of road accidents is now
acknowledged to be a global phenomenon with authorities in virtually all countries
of the world concerned about the growth in the number of people killed and
seriously injured on their roads. In recent years there have been two major studies
of causes of death worldwide, which have been published in the 'Global Burden of
Disease' (1996. World Health Organisation, World Bank and Harvard University)
and in the 'World Health Report -Making a Difference' (WHO 1999).
These publications show that in 1990 road accidents as a cause of death or
disability were by no means insignificant,lying in ninth place out of a total of over
100separately identified causes. However, by the year 2020 forecasts suggest that
as a cause of death, road accidents will move up to sixth place and in terms of
years of life lost (YLL) and 'disability-adjusted life years' (DALYS) will be in second
and third place respectively.

1.2 Need for Road Safety Audit

Although the aspect of road safety is the aim of any design pro cess, it does not
cover all the requirements to ensure accident free sections in any road network.
Road safety audit is a formal procedure for assessing accident potential and safety
performance in the provision of new schemes, the improvement and the
rehabilitation of existing roads and in the maintenance of existing roads. Road
safety audit should form an integral part of highway planning, design, construction
and maintenance and it requires an objective approach to the assessment of
accident risk. This is to evaluate the degree of safety of road sections on a road
network. There is a need to prepare a road safety audit manual for field engineers
to enable them to carryout safety audit on existing roads, major rehabilitation works
andalso on new road schemes. The road safety audit, when used for applications
on existing roads, is more appropriately termed a road safety audit review (RSAR)
(Wilson, Eugene, 1999). RSA is a proven and highly cost effective process that
assists with the production of safer roads. It is apart of road design process in
Britain,
most of the road authorities in countries as far apart and as diverse as
Australia, New Zealand, Malaysia, Singapore, Canada and Denmark. In addition
PSA is at varying stages of implementation in other nations including South Africa,
The safety audit
Thaitand, India and Bangladesh as well as paris of Middle East.Australia, Canada,
process has produced dramatic improvements in road safety in and
New Zealand and the United Kingdom. It is designed to help project directors
designers anticipate potential safety problems and Administration
provide them with
(FHWA)
1ecommendations to address them. The Federal Highway
 A REVIEW OF RoAD SAFETY AUDIT PROCEDURES I|-139

Considers safety audits so valuable it partnered with fourteen States and two lcal
agencies to test their effectiveness. The Pennsylvania
Depatment Ol
Transpotation (Penn DOT) began "road testing" the safety audit process on a WIae
range of projects in April1997, even before the FHWA pilot program stated.
Introduced in England in the 1980s. the road safety audit originally was designed to
Identity traffic safety deficiencies on projects primarily still in the planning or
cOnstruction stages. In Australia the Federal office of Road Safety (FORS) is the
agency within the Department of Transport and Regional Development (DTRD)
responsible for road safety. FORS has identified the road safety audit as one of the
national "best practices" that could be implemented to meet safety objectives.

In spite of many benefits of the road safety audit process, it is amazing why allroad
agencies around the world are not practicing this process. The reason may be that
Some authorities have not yet learnt about the process/ benefits or some road
authorities suspect that they don't need road safety audit as they have worldclass'
designers. Some may think that they have higher priorities than audits such as
treating high frequency crash locations. The above views are incorrect and each in
their way is handicapping the advancement of road safety engineering in those
nations. With the rapid growth of new road infrastructure in many motorising
nations, the need for RSA in these countries is not only great but it is urgent (Phillip
Jordan, 2002).
2. ROAD SAFETY AUDIT

2.1 Definition

Austroads (1994) defines Road Safety Audit as: "A formal examination of an
existing or future road or traffic project, or any projects which interacts with road
users in which an independent, qualified examiner looks at the project's accident
potential and safety performance". This definition was further revised in 2001 as "a
formal examination of an existing or future road or traffic project, in which an
independent, qualified team reports on the project's accident potential and safety
performance". The European Transport Safety Council (ETSC, 1993), which is an
international nongovernmental organisation defines Road safety audit as "a formal
procedure for independent assessment of the accident potential and likely safety
performance of a specific design for a road or traffic scheme - whether new
construction or an alteration to an existing road". Manual of Road Safety Audit,
Denmark (1997) defines Road Safety Audit as "a systematic and independent
assessment of the safety aspects of road projects. Its purpose is to make new and
reconstructed roads as safe as possible - before construction is started and before
accident occur". Road Safety Audit Manual, Vietnam defines Road Safety Audit as
a formal process in which the planning, design,
construction, operation and
maintenance of new or rehabilitated road project is examined by an
qualified team to identify the projects potential accident and safety independent,
performance.
I|-140 SATISH & PRASAD ON

Manual of Road Safety Audit, Nepal (1997) defines Road Safety Audit as "a
systematic method of checking the safety aspects of new roads in order to detect
potential safety hazards before the road is opened to traffic". Guidelines for
Safety Audit of Highways, U.K., (1996) define Road Safety Audit as The
formal procedure for assessing accident potential and safety "advertising
provision of new road schemes and schemes for the performance in the
improvement and
maintenance of existing roads". The road and Traffic authority, New South Wales
(1991), defines Road Safety Audit as "a means of checking the design,
implementation and operation of road projects against a set of safety principles as
ameans of accident prevention andtreatment". Manual for Safety in Road Design,
India (1998) defines Road Safety Audit as a formal procedure for assessing
accident potential and safety performance in the provision of new road schemes,
the improvement and the rehabilitation of existing roads and in the maintenance of
existing roads.

From the above definitions, by seeing the commonality in features of RSA, Road
safety audit can be defined as a systematic approach/evaluation of existing/new
roads or traffic projects, in stages of planning, design, construction, operation &
mainternance to achieve accident free roads and safety performance."
2.2 Aims and Nature of Road Safety Audit

In safety audits the main objective is to ensure that all new highway schemes
operate as safely as is practicable. This means that safety should be considered
throughout the whole preparation and construction of any project" (HT,1996). RSA
takes the principles developed through accident remedial programs, which have
found to be effective and apply them pro-actively. The aim of the safety audits is to
identify what needs to be done to prevent the occurrence of accidents, or reduce
their severity of their occurrence. An audit is intended to identify potential road
safety problerns by looking at the scheme as if through the eyes of the potential
users of all kinds, and to make suggestions for solving these problems by applying
the principles of road safety engineering (AUSTROADS, 1994; Danish Road
Directorate, 1993; IHT, 1996).
More specific aims are:

To minimise the number and severity of accidents that will occur on the
new or modified road.
To avoid the possibility of the scheme giving rise to accidents elsewhere in
the road network and enable all kinds of users of the new or modified road
to perceive clearly how to use it safely.
Accident costs can be a major component of total road costs over the whole
economic life of the project if there is significant safety problem designed in to the
road. Road safety audits allow a pencil line on a plan to be changed, rather than
having to change lengths of concrete or asphalt on the road. Auditing existing
roads aliow action to be taken before accident statistics highlight a problem.
 A REVIEW OF RoAD SAFETY AUDIT PROCEDURES I|-141

2.3Partners in the AUDIT process

Afer a review of different countries Road safety audit processes it can be inferred
that three parties will involve in this process -Designer, Auditor and Client.
Designer is responsible for planning / designing the project. Designer bears the
responsibility for ensuring that a road safety audit is conducted and that the
necessary measures are agreed on the basis of the auditor's recommendations
and / or the client's decisions. The designer is also responsible for ensuring that
the audit input information is unambiguously defined and that all circumstan ces are
described inan easily understood manner. The project engineer or design engineer
should be responsible for initiating the safety audit process for each scheme, and
responding to the audit. Auditor's responsibility is to carefully review the presented
project details in the light of best road safety expertise and from the viewpoints of
all relevant road users. Persons designated as Road Safety Auditors work with,
and have experience of, road accident analyses and road accident reduction.
Auditors must be familiar with road planning, design and construction work and
must undertake to keep their exercise up-to-date. Auditors should work within the
terms of reference. They should comment only on the safety implications of
schemes and provide constructive recommendations as to how any potential
difficulties can be resolved. Client is one who allots the project for the designer and
owns the project. As the party responsible for the basic conditions of the project, it
is the task of the client to arbitrate in cases where the designer and auditor
disagree. Disagreements are presented to the client who sends its written decision
to the designer and auitor. One fundamental idea is that disagreements between
the designer and the auditor are decided not by the designer but by the client, who
has ordered the project from the designer. So it is an interaction between different
parties, whose roles are predefined at specific stages. The different parties are
client, designer and auditor. The Road safety audit process is a relatively simple
process. The RSA process is shown in Figure 1 as given by Werner Koppel, 2003.
The flow chart is self-explanatory.
2.4 Auditor's Requirements

To be effective the audit needs to be carried out by specialists who are

independent of the design process. The auditors in no way should be connected to
the project and he should have a fresh look at it.
According to Austroads a person who has an understanding of road user
behaviour and human perception is also likely to be able to develop road safety
audit skills. Auditors will be successful when they are able to use their skills to see
the road project from the point of view of the different types of customer or road
User - those able to think and perceive like each user. According to University of
New Brunswick, Canada, the audit team should be independent of the project
design team to ensure that those who are unbiased and those who may have
different perspective are reviewing the project.. The selection of an audit team
depends on the size and type of the project, the stage of audit and available
resourCes.
 Audit process
request from client, delivery of all documents to the auditor

independent examination, evt!. site inspection and preparation of

audit report

delivery of audit report to the cient, evt. discussion of audit

decision on audit result by the client

client accepts deficits client does not accept deficits
5 designer makes changes client gives reasons in writing

completion of audit phase

Figure 1: Safety Audit PrOcess

In Germany (Koppel, 2003), the basic qualifications of an auditor are university

education several years of road design experience or road related safety
investigations, additional qualifications by training courses, recent safety know-how
in design and operation. In Vietnam, the auditor should have sound knowledge
and experience in the field of road safety engineering, accident investigations and
prevention, traffic management, road design and construction techniques and also
have an understanding of road user behaviour and human perception are
considered suitable to conduct road safety audit. According to U.K., audit should
be undertaken by a team of people who have experience in the field of road safety
engineering and accident investigation, linked to an understanding of traffic
management and highway design. When necessary other fields such as
enforcement and maintenance access to local knowledge also be relevant and also
it should be independent of design team.
For conducting Road Safety Audit, it is difficult to find one person who is specialist
in many arcas. Therefore, different persons specialising in different areas are
required. For example, Austroads says 2 to 4 persons are needed for large projects
and one person is needed for smaller projects. Sometimes Highway authority itself
can go for road safety audit, if it is a small project.
 A REVIEw OF ROAD SAFETY AUDIT
PROCEDURES II-143

3 STAGES IN A ROAD SAFETY AUDIT

3.1 Road safety audit stages in different countries

Various stages in RSA adopted in different countries are briefly listed below.
Australia (Austroads guidelines, 2000)
There are 5 audit stages (6 stages post year 2000) as given below.
Stage 1- Feasibility Design
Stage 2 - Preliminary Design
Stage 3- Detailed Design
Stage 4a- During construction/traffic management (post 2000)
Stage 4b- Pre-opening
Stage 5- Post-opening and existing conditions
of road design,
Design auditing (stage 1 to 3) requires a far great understandingauditing.
of There is
traffic design, and road safety engineering than do later stages
conditions from design
also a need to be able to "visualise" future roadway
drawings.
Canada (UNB Transportation group 1999)
Brunswick.
The following are stages of audits proposed by University of New
Stage1 Feasibility (planning)
Stage 2 Draft (preliminary/layout) design
Stage 3 Detailed designs
Stage 4 Pre-opening and
Stage 5 Post-opening (including existing or in-service facilities)
The complexity and level of effort of the audit process changes with each stage

USA (Institute of Transportation Engineers, Washington DC, 2000) has given the
following stages.
Feasibility stage
Preliminary design stage
Detailed design stage
Construction -pre-opening stage
For existing roads
Germany (Werner Koppel, 2003)
Preliminary planning phase
Preliminary design phase
Execution design phase
Traffic authorization
Roads in use (local road safety inspection, since 1971).
After examination of different stages of RSA of different countries, different stages
of safety audit are outlined below.
I|-144 SATISH & PRASAD ON

During Feasibility study Stage 1 Audit

During Preliminary design Stage 2 Audit
Completion of Detailed design Stage 3Audit
Completion of Construction Stage 4 Audit
On Existing Roads (Monitoring) - Stage 5 Audit
3.2 Austroads Road safety audit stages

Austroads guidelines have been recognized as very easy to read document and
recently described as "the definitive document on safety audit, for its messages
and recommended procedures transcend hemispheres and are applicable
anywhere in the developed world" (Bulpitt, 1999). So the various stages of
Austroads (2000) RSA are described below.
Stage 1 Audit: During Feasitbility Study
By providing a specific safety input at the feasibility stage of major schemes,
particularly in urban areas, road safety audit can influence route choice, standards,
impact on and continuity with the existing network, junction provision etc.
Review of initial projecUplanning study: Important subjects for assessment at this
stage will include choice of route options, standard and cross-Section, effects on
existing network, number of junctions and their types etc.
Stage 2 Audit: Completion of Preliminary Design
On completion of preliminary design, to assess horizontal and vertical alignments,
sight lines and layout of junctions including slip roads and lay-byes. After this
stage, land acquisition and other associated legal matters become finalized.

Stage 3 Audit: Completion of Detailed Design

This audit occurs on completion of detailed design and before preparation of
contract documents. Typical considerations include geometric layout, line
markings, signals, lighting, signing, intersection details, clearances to roadside
objects and provisions for vulnerable road users. Attention to detail at this design
stage can do much to reduce the disturbances associated with last minute
changes, which may otherwise be brought about with a pre opening audit. It is
easier and cheaper to change some marks on a drawing than to later rebuild or
rectify a road project that proves to be hazardous.
Stage 4 Audit: pre-opening stage audits
This stage is immediately prior to opening of scheme, involving the site staff and
local traffic police. This should take the form of driving and when
appropriate,
walking or cycling the new route. This is checked during nighttime also to check
signage delineation and other darkness-related issues.
 AREVIEW OF ROAD SAFETY AUDT PROCEDURES I|-145

Stage 5 Audit: safety reviews of existing roads

This audit aims to ensure that the safety features of a road are compatible with
functional classification of the road and to identify any feature, which may develop
Over tinne into a safety concern. Regular audits of existing roads allow road safety
hazards to be identified before they result in accidents.
4 MISCONCEPTIONS ABOUT ROAD SAFETY AUDIT

There has been some misuse of the term road safety audit' since its inception a
decade ago. So the following guidelines provide advice about what a road safety
audit is NOT (Morgan, Phillip Jordan, 2000).

It is not a way of assessing or ratinga project as good or poor.

It is not a means of ranking or justifying one project against others in a
works program.
It is not a way of rating one option against another.
Itis not a check of compliance with standards.
It is not an accident investigation.
It is not a redesign of a project.
It is not something to be applied only to high cost projects or only to
projects involving safety problems.
It is not the name you use to describe informal checks, inspections or
consultations.

It is a commonly held view amongst engineers that complying with standards

results in a safe design (Morgan, 1999). It is understandable that some
practitioners think 'standards equal safety', given that they spendso much of their
design time using standard values. Unfortunately this view is a fallacy, there is no
single demarcation point in road design between what's 'safe' and what's 'unsafe'
and it is no more true that a design which complies with all relevant standards is
'safe', than it is that a design which fails to meet astandard is necessarily 'unsafe'
in the particular circumstances The achievement of appropriate levels of safety in
road and traffic designs requires more than checking against standards. Rather
than 'checking for compliance', we need to 'check a design's fitness for purpose'
will the road or traffic treatment work safely for its expected users? This requires
professional judgment by a person or people with road safety engineering skills. In
short, it means aRoad safety audit.

5COSTS AND BENEFITS

Audit costs were estimated to be in the range of from £ 100 to £ 6,000 (at 1993
prices) (HT study 1995). In the UK, the 1994 value of preventing an injury accident
was £55,650, so the actual cost of carrying out arelatively extensive audit is a
fraction of the value of preventing a single injury accident (ETSC, 1997). In
Australia, each stage of an audit of a scheme typically costs between AUS $ 1,000
to AUS $ 4,000 depending on the size of the scheme (ETSC, 1997).
I|-146 SATISH & PRASAD ON

According to Denmark,it is estimated that the in case of large projects cost of

auditing including the time of auditors and designers amounts to nearly 1%of the
construction costs. According to Vietnam,cost of auditing is estimated to be about
4 to 10% of the design cost. In U.K., benefit cost ratio has estimated 14:1, whereas
New Zealand a potential benefit cost ratio of 20:1 has been estimated for
consistent safety audit procedures.

Austroads recently commissioned a consultant to investigate, identify and measure

the benefits achieved by road safety audit in Australia. The Austroads study has
completed an international review of recent literature, which demonstrates the
benefits of road safety audit. (Phillip Jordan, 2002).
A study in Great Britain that compared before and after crash statistics found that
audited schemes achieved an average casualty savingper year of 1.25, compared
to a saving of 0.26 for non audited schemes. Another study in Great Britain found
that average savings from implementing changes at the design stage rather than
after the project was constructed was approximately US$ 15,000 (Belcher., 1993).
An evaluation study in Denmark, which involved a cost benefit analysis of 13
projects that had been subjected to road safety audit, gave a first year rate of
return of 146%. Astudy in the Middle East concluded that aroad safety audit would
have provided a first year rate of return of 120% (Phillip Jordan, 2002).
In 1994 a study was undertaken in an English county in which two groups of
matched schemes, one group having been audited and the other not, were
compared (Surrey County Council, 1994). This study estimated that the audited
schemes showed a saving of about 1 accident per site per year compared with the
schemes, which were not audited, a saving which represents an accident cost
saving per scheme well in excess of the cost of auditing the schemes.
The benefits of safety audits and safety impact assessment are in:
Minimising the risk of accidents Occurring in the future as a result of
planning decisions on new transport infrastructure schemes;
Reducing the risk of accidents 0Ccurring in the future as a result of
unintended effects of the design of road schemes;
Reducing the long-term costs associated with a planning decision or a
road scheme;
Enhancing the awareness of road safety needs among policy-makers and
scheme designers.
A better understanding and documentation of road safety engineering.
6 RECOMMENDATIONS

After thoroughreview of literature the following recommendations can be made to

the countries where Road safety audit is in a developing stage or not yet practicing.
 AREVIEW OF ROAD SAFETY AuDIT PROCEDURES
II-147

In countries where Road Safety Audit is in a

need to examine their own procedures for the developing stage there is a
infrastructure projects to see how they can beassessment of safety in road
made more effective in the
light of practice in other countries.
In countries where no formal
procedure for safety audit exists, a mandatory
requirement has to be introduced such that all major new road schemes
are subjected to an independent safety audit.
Formal procedures have to be extended to smaller schemes.
Guidelines are to be prepared for use at national and local level laying
down the terms of reference for safety audit
including the
responsibilities of all concerned, with the help of experience in roles and
countries
where safety audit is already practiced.
Adetailed RSA manual of good practice, which may be
used in conjunction
with the guidelines, is to be made essential.
7 SUMMARY

In the view of deaths and injuries as a result of road accidents virtually in all
countries of the world there is an urgent need for implementation of road safety
audit to minimize the fatalities due to road accidents. The purpose is to avoid the
cost of any unnecessary future accident and casualty problems. At the strategic
level, this entails assessment of the road safety implications of planning decisions
that relate to modal choice, land use, the characteristics of city centers, transport
infrastructure and services, and the interaction between public provision and
private choice.

RSA can be used as powerful tool to minimize the risk of accidents on the road
stretch, and to minimize the severity of accidents that do occur. By adopting a road
safety audit procedure and by applying it within the design department of national,
state and local authorities, RSA can start at minimum cost and with minimum
disruption to existing programs. To ensure that the road safety audit process takes
hold in a uniform manner, and to establish a process which is recognised formal
and worthwhile, it is necessary to hold a number of road safety audit
awareness/training programs at national and state level. Even the road safety
audits for small cities and towns can be developed and promoted as is in use in
some parts of America. Mandatory and cost-beneficial safety audit procedures
Drogrammed at wel defined stages during the planning, design and construction of
road schernes have to be carried out.

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I|-148 SATISH & PRASAD ON A REVIEW OF ROAD SAFETY AUDIT PROCEDURES

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