A SURVEY OF HIGHWAY TRAFFIC SAFETY ' MANAGEMENT PRACTICES IN NIGERIA Dissertation for the Degree of Ph. D. MICHIGAN STATE UNIVERSITY CHRISTIAN OLUKAYODE OLUDURO 1977 LIBRA If: I Michigan State UIIIVCrfilty A SURVEY OF HIGHWAY TRAFFIC SAFETY MAW PRACTICES IN NIGERIA By Christian Olukayode Oluduro Statanent of the Problem The importance of highways in Nigeria ' s transportation system has grown steadily through most of the decade. While it has increased personal and goods nobility and accessibility to a substantial extent, like nost physical problems , it has also created a multitude of problems for Nigerians , praninent almng which are traffic accidents . Indeed the unsafety presently prevailing on Nigeria's highways has A beoare one of the most urgent national problems confronting the nation because safety on the nation '5 highways is a subject that affects virtually the entire population. Over the years, a myriad of public and private agencies had anerged to provide a multitude of management services and activities in response to Nigeria's unsafety problems. aich a nulti-jurisdictional situation required sate coordinative mechanisn that is effective for integration and coordination of existing highway safety efforts among the various agencies providing management services. Paradoxically m such formal mechanism existed. It is therefore the purpose of this study to review the current role and involvenent of these Christian Olukaycde Oluduro agencies in highway safety, examine their organizational structures and management practices in order to identify the principal problems in herent in the structures and management practices in highway safety and offer a management model that will encourage and facilitate the coordinated execution of unified planned actions by the diverse piblic and private agencies in highway safety in Nigeria. The survey was undertaken basically to provide first hand information for subsequent analytical treatment of highway safety management practices in Nigeria . In order to accamplish this , a questionnaire was developed to survey the highway safety practitioners asking them for opinions and crxments on items dealing with highway safety management practices in Nigeria both in the public and private sectors. These items were included in the following three sections: (1) Highway Safety Management Structure and Organization in Nigeria; (2) Highway Safety Management Practices (the management process -- planning , programing , hflgeting, execution and control, and evaluation); and (3) Highway Safety Intergovernmental and Private Organization Relationships . Description of the thhods, Techniques and Data Used The sample for the survey was limited to the total population of 161 higlway safety practitioners throughout the country - 21 were interviewed while the remaining 140 were surveyed through mailed questionnaire. An opinion questionnaire was developed to obtain opinions on items stated in the sections outlined above. Prior to the conduct of the interview and mailing of the questionnaire, apanel of expertswas selected to review the Christian Olukaycde Oluduro questionnaire . After the review , the questionnaire was pilot-tested . In adiiticn, a letter of explanation was drafted by the author and a letter of endorserent was obtained fram Professor Robert Gustafscn, Professor of Criminal Justice and Traffic Safety Education of the Highway Traffic Safety Center at Michigan .State University . After a period of four weeks, a follow—up letter was sent to those practitioners who failed to respond to the initial mailing. The initial mailing and subsequent follow-up produced an 83% response of catpleted questionnaires. A total of 116 questionnaires was received fram the 140 practitioners sampled. Also, an 86% participation in the interview was obtained. A total of 18 practitioners out of 21 were interviewed. The files for the interview survey and the mailed questionnaire were treated separately. Responses and cements from the respondents were reviewed and the tabulated findings were divided into five sections and reported by a descriptive analysis using percentages. The Major Findigs The survey indicated that: l . Highway traffic unsafety problems in Nigeria were extensive in type, magnitude and complexity. The highway traffic fatality and injury rates have sinwnanupwardtrendcverthepasttenyears. 2. By carparison with other governmental programs, highvay safety did not enjoy high political visibility and support. . Christian Olukayode Oluduro The organization of highway safety activities was not an intergrated , cohesive operation . Diverse responsibilities have been assigned to or assumed by the various state and local agencies , resulting in a severely fragmented set of responses and services . This fragmentation has led to a number of inefficiencies. The Federal Government through the RSC which was expected to provide leadership and play the most praminent role in highway safety played that role independent of states and surrounding local highway safety cammmities . The Federal Government through the RSC lacked effective leadership and authority necessary in managing highway safety activities in Nigeria. There was no recognizable formal management process for highway safety at all levels and there were a lot of deficiencies in the management process in highway safety. There was no process or established method specifically geared to planning, resource allocation or evaluation of highway safety activities . mile planning suffered from a lack of data and evaluation from a lack of recognition , program execution and control decisions were arbitrary. Deficiencies existed in the flow of highway safety program infonmation among the various units connected with highway safety . AWCFHIQMYTRAFFICSAFEI‘Y WP PRACTICES IN NIGERIA BY Christian Olukayode Oluduro A DISSERTATICN Suhnitted to Michigan State University in partial fulfth of the requirements for the degree of mmPHIIOSOPHY Department of Secmdary Education and Curriculum 1977 QIQTIOVS Copyright by . Cc) CHRISTIAN OLUKAYODE OLUDURO 1977 This dissertation is dedicated to: Brigadier Olu Bajcwa of the Nigerian Army for his golden advice to me when I was (ping for postgraduate studies Colonel Bulnari for recommending me for the postgraduate studies Colonel Tarfa and Dr. Balcgun for their fantastic contributions to Traffic Administration in Lagos Conurbation ii ACWLEDGEMENPS To Professor Robert Gustafscn, my major acadenic advisor and chairman of my guidance committee, for his advice, encouragement and kindness. To other metbers of my guidance committee, Professor Robert bblan, Professor Edwin Keller, Colonel Francis Brokaw, for their encouragement and helpful assistance. A special note of thanks to Major Ade Ikupolati, Lt. Colonel Arokcyo, Major Femi Adewole, 'Bayo Ogunbi, Dr. Ogunlade, Bayo Adetowubo, Shadi, Mrs. Wiseman, Tony birch, and Brigadier Aisida for their encouragement and assistance with this study. To my parents, and my wife's parents, for their care and support. To my wife, Kemi, and son, Olukayode (Junior) for their patience, love, understanding and many personal sacrifices. To Keni Oluduro, Robins Bailey, Sandra Watts and JFemi Runshewe who typed the manuscript and successfully coped with the format detail - my sincere thanks. iii 'IABLECFCWI‘ENI‘S Chapter Page I THE: PROBLEM . . . . . . . . . 1 Traffic Situation . . . . . . 6 Statement of the Problem . . . . . . 10 Purpose of Survey . . . . . . ll Scope of the Survey . . . . . . 12 Limitations oftheSurvey 12 Researcher's Bias (Working Hypothesis) . . . 13 Definition of Terms used . . . . . . 14 Organization of the Study . . . . . . 16 II REVIENCF'IHELITERATURE 7 18 Conference Papers and Reports relevant to Highway Safety Management . . . . . . 20 Related completed studies and project reports on Highway Traffic Safety . . . 24 Related Studies that employed Management Models and Techniques applicable to this Survey... 33 III SURVEYDESIGNAINDNEI'I-mOIDGY 46 Natureof study.. 46 Sample Selection . . . . . . 48 Interview . . . . . . . . . 49 tailed Survey of Practitioners . . . 51 Questionnaire Development . . . . . . 51 masticnnaire Design . . . . . . 52 Interview Questionnaire . . . . 52 Mailed Qiestionnaire . . . . 58 Panel of Experts Review . . . . 60 Pilot Study . . . . . . . 61 Interview Techniques . . . . . 62 Mailing Procedure . . . . 63 Methods for the Analysis of the Data . 64 Summary . . . . . . . . 65 IV AMLYSISASDFINDINGSOFTHESURVEY 66 The magnitude and nature of the Highway Unsafety problem . . . . . . 67 iv BMW APPENDICES K. L. Page Organizatianal characteristics of Highway Safety 77 The role, participatian and involvement of the prlic and private sectors in Highway Safety 97 met Management Practices in Highway Safety 103 Prdalets in Ctnreit Highway Safety Management Practices 159 Smmary 171 SIM, MSIGNT, WENS, Wrens FOR FURTHER mama AbDDIHIJSSICN 174 m 0.. .0. 0.. .0. 0.. 174 Conclusims 182 Recamendatimsandaiidelines 186 SuggestiansfcrfurtherResearch 213 Discussion 214 0.. 0.. 0.. 0.. 0.. 218 Highway Safety MagemeIt Organization andStructure 224 HigtnaySafetyManagetmt Practices 226 Highway Safety Intergovermertal and Private (rganizatims relationships 229 MailedQJesticnnaire 231 letter of introductian from the Academic Advisor 236 CoverlettertoRespmdents frumtlneAuthor 237 A Reminder to the Mailed Qiestimnaire Wits 238 AletterofAckncwledgement fromtheAuthorto the Mailed Questionnaire Respmdeits 239 A model decree for establishing Higl'may Traffic Safety Oatmissian in Nigeria 240 A Model Pcsitim Description for the Head of; State Highway Safety Represertative 241 Abbdel Position Descriptim for the Governor's Highway Safety Representative 242 A tbdel Position Description for Highway SafetyCcordinatcr 243 V LISTOFTABLES Table Page 1. 1 Capital programme by Governments and activities (transport) . . . . . . . . . 2 1.2 Summary of Road Accidents and Casualities in Nigeria 1970-1975 . . . . . . . . . 8 4. 1 Traffic Fatalities and the Percentage of increase 1970-75 . . . . . . . . . 69 4.2 Number of persons injured in traffic accidents and the percentages of their increase in the period 1970-75 . . . . . . 69 4.3 Showing Summary of Road Accidents and Casualties Januaryl-Decetber31, 1975 72 4.4 Stnwing Cost of Road Accidents in Nigeria in the period 1970-76 . . . . . . 73 4.5 Deathsby‘rypesofAccidentsinNigeriainthe period 1970-76 . . . . . . 74 4.6 Growth of thcr Vehicles in Nigeria 1955-1976. . . . 75 4 . 7 Responses of Mailed Questionnaire Respondents in percentages relative to various agencies involved in highway safety in Nigeria . . . 79 4.8 Responses of the Interviewees in Percentages relative to the question: "that does the R.S.C. ®? .0. .0. 00. 83 4 . 9 Responses of the Interviewees in Percentages relative to the question: "Phat have same of the R.S.C's accmplistument been?" .. . 83 4.10 Responses of the Intervieaes in Percentages relative to the question: "flow is the Road Safety Ommission funded?" 86 4.11 Responses of the Interviewees in Percentages relative to the question: "tho does the R.S.C. camunicate with relative to its activities! " . . . 87 vi ‘Iable 4 . 12 4.13 4.14 4.15 4.16 4.17 4.18 4.19 4.20 4.21 4.22 Responses of the Interviewees in Percentages relative to the question: "Met have been the greatest barriers for the RSC in implerenting its charge in highway safety?" . . . Responses of the Interviewees ard Questionnaire Respodents in Percentages relative to the question: "Do you think the mad Safety Commission should continue to exist?" . . . Responses of the Interviewees ard Qiestionnaire Respondents in Percentages relative to the question: "Do you think the Road. Safety Commission should be granted an executive power?". . Responses of the Interviewees arnd Qnesticnnaire Respondents in Percentages relative to the question: "Do you think the Road Safety Commission has been effective in managing highway Safety?" . . . Responses of the Interviewees and Questionnaire Respondents in Percentages relative to the question: "Is there any professional practitioner or specialist erployed by the RSC or utilized in program execution of highway safety?" . . . Responses of the Interviewees and Questionnaire Respondents in Percentages relative to the question: "Wnat changes would you recomrend to enhance the effectiveness of the RSC?" Responses of Interviewees in Percentages relative to the question: "Which government jurisdictions are providing services in highway safety?" . . . Responses of Interview Respondents relative to the question: Which governmental agency is responsible for highway traffic safety works? " Responses of Interview Respondents relative to the qtestion: "In wlnat activities are the private sectors involved in highway safety? " Responses of Interviewees ard Qestionnaire Respodents in Percentages relative to the question: "To what period in the futinre are plans made (short-term or long-term)?" . . . Responses of Interview Respondents in Percentages relative to the question: "Raw important is the RSC in influencing road construction that will reflect the inclusion of traffic safety devices?". . vii Page 88 90 91 92 93 94 99 101 104 106 108 Table 4.23 4.24 4.25 4.26 4.27 4.28 4.29 4.30 4.32 4.33 Responses of Interviewees and Questionnaire in Percentages relative to the question: "Are planning information provided in highway safety?" ... ... ... Responses of Interviewees and Questionnaire Respondents in Percentages relative to the question: "Are highway safety activity plans fcrmally documented?" ... ... Responses of Interviewees and Questionnaire Respondents in Percentages relative to the question: "Are there any guidelines for planning?".. Responses of Interviewees and Questionnaire Respondents in Percentages relative to the question: "Is there any coordination in planning among the Federal, State and Local governments and the private sector?" Responses of Interviewees and Questionnaire Respondents in Percentages relative to the question: "How are highway safety plans used?" Responses of Interviewees and Questionnaire Respondents in Percentages relative to the question: "Are objectives and priorities set for highway safety planning?" ... Responses of Interviewees and Questionnaire Respondents in Percentages relative to the question: "Who assigns responsibilities for the performance of highway Safety programming?" Responses of Interviewees and Questionnaire Respondents in Percentages relative to the question: "Are highway safety programs fonmally prepared and documented?" ... Responses of Interviewees and Questionnaire Respondents in Percentages relative to the question: "Are programs developed for more than cneyearpericd of time?" Responses of Interviewees and Questionnaire Respondents in Percentages relative to the question: "Are there any guidelines for developing programs in highway safety?" ... Responses of Interviewees and Questionnaire viii Page 109 110 112 113 114 115 117 118 119 120 Table 4.34 4.35 4.36 4.37 4.38 4.39 4.40 4.41 4.42 4.43 Respordents in Percentages relative to the question: "Are alternative programs considered in highway programming?" . . . . . . Responses of Interviewees and Questionnaire Respodents in Percentages relative to the question : "Are current program information available in highway safety?" . . . Responses of Interviewees ard Questionnaire Respondents in Percentages relative to the question: "Are highway safety programs that cross departmental lines prepared ard documented?" . . . Summary of Federal Road Programme 1975-80. .. . Responses of Interviewees and Questionnaire Respondents in Percentages relative to the question: "Is the budget in highway safety tied to the planning or programming activities?" . . . Responses of Interviewees and Qiestionnaire Respodents in Percentages relative to the question: "Is highway safety entered as a separate budget category?" . . . . . . Responses of Interviewees ard Questionnaire Respodents in Percentages relative to the question: "In what way does the RSC members ard state representatives participate in the budgetprocess? Responses of Interviewees in Percentages relative to the question: "What is the time or period covered by the budget?" . . . . . . Responses of Interviewees ard Questionnaire Respodents in Percentages relative to the question: "Is there any guideline for making the budget? " Responses of Interviewees in Percentages relative to the question: "What are the revenue sources, in percentages , for supprting private sector highway safety activities?" . . . . . . Responses of the Interviewees ard Qnestionnaire Respondents in Percentages relative to the question: "Is information on program execution ard control available?" ‘ . . . . . . Page 122 123 124 125 127 128 129 130 131 132 134 Table 4.44 4.45 4.46 4.47 4.48 4.49 4.51 4.52 4.53 Responses of Interviewees and Questionnaire Respondents in Percentages relative to the question: "Is program execution information recorded?" ... ... Responses of Interviewees and Questionnaire Respondents in Percentages relative to the question: "Are there any guidelines for program execution and control?" ... Responses of Interviewees and Questionnaire Respondents in Percentages relative to the question: "Are decisions made during program execution based on research work?" Responses of Interviewees and Questionnaire Respondents in Percentages relative to the question: "Who is responsible for program execution and control in highway safety?" Responses of Interviewees and Questionnaire Respondents in Percentages relative to the question: "Are programs evaluated in your highway safety unit?" ... Responses of Interviewees and Questionnaire Respondents in Percentages relative to the question: "Are evaluations of programs documented and distributed?" ... Responses of Interviewees and Questionnaire Respondents in Percentages relative to the question: "Is there any specific evaluation :methcd or technique?" ... Responses of Interviewees and Questionnaire Respondents in Percentages relative to the question: "Is there any guideline for program evaluation of highway safety activities?" Responses of Interviewees and Questionnaire Respondents in Percentages relative to the question: "Who is responsible for program evaluation in highway safety?" .. Responses of Interviewees and Questionnaire Respondents in Percentages relative to the question: "How'often are programs reviewed in your organization?" ... Page ... 135 ... 136 ... 137 ... 138 ... 140 ... 141 ... 142 ... 143 144 ... 145 Table Page 4.54 Responses of the Interviewees in Percentages relative to the question: "Does a situation exist in which the federal government may contact with the state for services?" ... 147 4.55 Responses of the Interviewees in Percentages relative to the question: "What relationship exist between Federal and State for providing services?".. 148 4.56 Responses of the Interviewees in Percentages relative to the question: "What relationship does the state maintain with the local government in the area of highway safety?" ... 149 4.57 Responses of Interviewees and Questionnaire Respondents in Percentages relative to the question: "Does the State have formal arrangements with other local jurisdictions in highway safety?" ... ... 150 4.58 Responses of Interviewees and Questionnaire Respondents in Percentages relative to the question: "Does local government rule complicate Federal highway safety programs?" ... 151 4.59 Responses of the Interviewees in Percentages relative to the question: "Who is responsible for applying for State and Federal funds for local highway safety projects?".. ... 152 4.60 Responses of Interviewees and Questionnaire Respondents in Percentages relative to the question: "Does the state maintain relationships with private sector in highway safety activities?" 154 4.61 Responses of Interviewees in Percentages relative to the question: "What communication channel is used in highway safety between Federal, State and local levels in highway safety?" ... 155 4.62 Responses of the Interviewees in Percentages relative to the question: "Do other council jurisdicitions have a central highway safety coordinator?" ... ... 156 4.63 Responses of the Interviewees in Percentages relative to the question: "Do private sectors have a central highway safety coordinator?" ... 157 xi Table 4.64 4.65 4.66 4.67 4.68 4.69 4.70 4.71 Responses of the Interviewees in Percentages relative to the question: "Mnat problems exist in state and local inter-governmental relationship? " . . . Responses of Interviewees in Percentages relative to the question: "Are the problems in private and inter-governmental relationships in highway safety due to lack of coordination or cooperation, different objectives, political considerations, geography etc.?" Responses of the Interviewees and Qiestionnaire Respondents Percentages relative to the question : "What will you reconmend as a measure to promote the interrelationship between the private and public sectors in highway traffic safety field in Nigeria?" . . . . . . . . . Responses of the mailed Questionnaire Respondents in Percentages relative to the question: "What do you think are the important problems facing highway safety managenent in Nigeria today?" Responses of the Interviewees in Percentages relative to the question: "Mnat have been some of the recommendations that the RSC has made to the government or other appropriate bodies?" Responses of Interviewees in Percentages relative to the question: "Which ones of these recommendations ultimately adopted and implemented as a part of the traffic safety management program?" Responses of Interviewees and Qnestionnaire Respondents in Percentages relative to the question: "Do you feel research work can help to improve highway safety managenent?" . . . Responses of the Interviewees and Qiestionnaire Respondents in Percentages relative to the question: "Do you think that with our present resources -- human and non-human --, Nigeria's traffic unsafety problems can be solved?" Page 158 160 161 163 166 167 169 170 LIST OF FIGURES Figure Page 3.1 The Managerent System . . . . . . 47 4.1 various Crganizations involved in Highway Traffic Safety Management in Nigeria illustrated ... ... 80 4.2 Program Managenent Organizations in Federal and State Governments Highway Safety ... 84 5.1 Proposed Highway Safety Organizational Structure illustrated ... ... 188 5.2 Proposed Highway Safety Organizational Structure at the State level ... ... 199 5. 3 Proposed Highway Safety Organizational Structure at the Federal level ... ... 200 5.4 An ideal Plan illustrated ... ... 204 xiii CHAPTER 1 TI IF PROBLFI‘I As a nation, Nigerians are concerned about their mobility. This concern was readily apparent in the Third National Development Plan 1975-80.J' Of all sectors of the. economy outlined in this Plan, the transport sector made one of the heaviest claims on tho avai ltnble capital development funds -- a total of 957.3 billion ($10.8 billion) was allocated for capital expenditure in the transport sector. This was made up of 141.0 bill ion ($1.35 billion) for the states and N=6.3 billion ($9.45 billion) for federal programs. In the First and Second National Development Plans, the transport sector a]. so mado its impact. One-fifth of the First National Development Plan (1962-68) capital outlay was spent on the transport sector, and one—thj rd of the Second National Development Plan (1970—74) public sector capital. program was devoted to the transport sec tor . The highway transportation system -- a system within this macrotransportation system - because of its central role in Nigeria's economy, has received particular attention. Of the capital expendn' ture which will be provided for the transport sector from 1975-80, 56.23 billion ($9.33 billion) or 85% will be spent on highways while N528 million ($792 million) will be 0 ..»......-—.---¢—-.—..” # 1The Central. Planning Office, Federal Ministry of Fconomlc Development: :llnoirdfiNatigrLa] Development Plan 1975-80, logos, Nigeria , 1975 . 1 .mowma .omunmafl swam unmea0Ho>oa Hmaoaumz chase "mompom wmc.q~sqw,aaa.omm.a oam.m-.a mam.mmo«a mmw.mmm«H woo.mom.~ . . A .; . .u>ou aaa aumm uaauauqz mam.H o-.¢ oaa.ma mno.~a o~m.- om~.qe . . magnum ham.m was.» mmH.HH oeH.NH Hoa.m Ham.~o . . Hmuuumm . . . . .asusumuaz uamHaH oom.~ coo.» ooa.o~ on~.m~ oom.- ona.om . . . . . . . . . . usuaua< aquamaz oea.ooa omm.nm oom.e~H can.ooa omo.am oma.ohe . . . . . . . . . . . . . . .aoauafi>< Ha>ao co~.mo~ ¢o~.~c~ omn.He~ soo.~m ~no.nm oNo.nmm . . . . . . . . . . . . . . . . . .msasafiam m-.m~a moa.mua mma.m- «mo.¢n~ ma~.oa~ osq.ema . .muuuum Ha< eme.oqm e~a.mm~ caa.ooa ca¢.m~a.~ «Na.aha ooa.mnm.q . . . Hauouom . . . . . . . . . . . . «swam omuasaa shamaaa m~-~hma hauosoa o~-m~aa Huuoa muouuomaaam Aaoaaaaz xv Agvégggggg “H 4333.. spot on air transportation and £645.62 million ($818.43 million) o1 various elements of water transport. These expenditures represent 7.2% and 7.5% respectively. A summary of the transport section investment programs during the 1975-80 period is presented in Table 1.1. The benef its of the highway transportation system to the social and economic structure of the nation are substantial . rI‘he highway system made Nigeria the most mobile population in Africa since this type of system is the most flexible and responsive node of transporta- tion and provides the greatest freedom of mobility. It accounts for significant employment opportunity. It profoundly altered the country's land use patterns and increased land values. It improved travel times, lowered commercial Operating costs and increased effectiveness of services. Most importantly, it established the autoiobile as an important part of the nation's mobility and economic activity.2 With the establishment of the highway transportation system, there is no doubt that the autorobile is and will continue to be the most universally accepted form of transportation in Nigeria. At present about 95% of all person-trips in urban areas are by automobile, nearly 100% of the consumer and social services society depends upon are transported or conducted by the automobile , and over 60 times as many person-miles of travel between cities, towns and villages are by automobile as by airplane and train. z'me automobile in this context refers technically to any road car, omnibus, truck cycle (motor, auto, pedi, bi) propelled w a lightweight, internal cmbustion engine or manual transmission at a walking pace. As indispensable and important as the autorobile is, like most mysical systems, it also introduced a multitude of other effects on . the human and natural environment. It has become a major contributor to fatalities, injuries, air pollution, high energy consumption and traffic congestion. Both its technical performance and its more intelligent and socially responsible utilization have become matters of urgent and continuing concern. This undoubtedly led to a new phase of major policy in national transportation objectives as contained in the Third National Development Plan 1975-80. Nigeria's transportation objectives were spelled out for the first time in 1.965 in a Government White Paper on Transportation Development as a "coordinated support of national objectives of creating a network of fast, safe, efficient highways spanning the country."3 These objectives are as relevant and valid today as they were 12 years ago but they have not been corpletely realised as they are of a long-term and continuing nature. Conditions have changed since 1965, however, and realization of this fact leads to the addition of two more specific objectives -- that of: 1. Ensuring increased safety, and 2 . Providing better service to those who use the highway transportation network . These additional objectives are aimed at ensuring that the purpose of the present heavy investment in transportation facil ities and equipment is not defeated by the improper and unregulated use. of. the facilities so created. 3Federal Ministry of Economic Development: Government White Elgar gr: Transportation Development, Lagos, Nigeria, 1965. Unfortunately, up to the present time, performance and coordina- tion within the highway transportation sector have not been satisfactory, especially in the highway traffic safety field, not only because of misinvestments but also because of inadequate utilization of human and material resources directly arising from poor management and control. To attack this management problem, extensive investigations and studies were undertaken on the more problematic areas of the highway transport sector during the 1970-74 period.4 Among the accepted results of the studies which related to management and control, it was noted that: "al though there has been some improvement since 1970, management remains the most intractable problem of the public corporations and companies operating in the highway transport sector . "5 This “management problem" is the problem with which this survey is concerned . The author ' 5 interest in ensuring increased highway safety through management practices prompted him to pursue this study. 'lhe author believed there are many opportunities to improve the effectiveness of organizations and individuals participating in the work of highway safety at all levels of government, in private industry, and in voluntary agencies. These improvements can be realized by taking a more comprehen- sive approach to managing highway safety activities. This approach is particularly effective when it is necessary to organize a wide 4The Central Flaming Office, Federal Ministry of Economic Development: The National Development Plan 1975-80, Lagos, Nigeria, 1975, p. 199. SKampsax Nigeria Limited: Trlick Road and Maintenance Studies 1971 for the Federal_Rep.1blic of Nigeria, Lagos, 1972, p. 122. W of activities of many diverse organizations into the orderly program required to achieve broad objectives. Certainly, highway safety is a field that is complex and varied enough to benefit from the nanagerent approach . TRAFFIC SITUATION Nigeria's highway transportation system is a classic example of a technological development that resulted in great benefits but also created serious problems for the society. The national population census of 1973 listed same 12,000 places in Nigeria where people lived. They ranged fram villages of less than 80 inhabitants to cities like Ibadan and wnurbations like Lagos. In and around these places, about 75 million Nigerians6 made use of approximately 6 million vehicles. Eyeryone who drives and/or rides in an automobile, everyone who walks and/or crosses both the rural and urban roadways has a right to be protected frcm the malfunctioning of the highway transportation system. Their safe travel is a national goal and priority. Highway travel and the functioning of the highway system were taken very much for granted by the average Nigerian citizen until the question was asked: "How well does the system operate? How well do the catpcnents interact?" One measure of how well the highway traffic system in Nigeria operates is the incidence of highway crashes , the death tolls, personal injuries, congestion, property damage and losses that result from highway use. Of these losses, the most compelling ones are those which involve serious or fatal injury to human beings. 6Daily Times edition, April 11, 1977. In an address entitled, "Searchlight on Crucial Document, " delivered by Brigadier Shehu Yar'Adua, Chief of Staff, Supreme Headquarters, Lagos, Nigeria. In 1975, there were 32,651 highway crashes which resulted 7 in 5,552 deaths, the highest total on record. This was 20% more than the 1973 total of 24,844 highway crashes resulting in 4,537 deaths, which was the first time the figure exceeded 4,000 (See Table 1.2). Disabling injuries in 1975 were estimated at 20,132.8 Less serious injuries totalled 19,497 ccmpared with 13,154 injuries in 1973.9 Property damage accident costs were indicated to be in excess of £350 million ($80 million). (he vehicle in four was involved in same kind of an accident during 1974. The economic losses mounted to more than moo million ($237 million) in 1974.10 None of these statistics expresses adequately the human significance of traffic accidents in Nigeria. When one considers people as one of the important resources of a developing country like Nigeria, the death toll imposed by highway related accidents becomes very devastating. Approximately 2 million man-years were lost in 1974 due to highway crashes and approximately 5,000 out of the 19,000 personal and disabling injuries were taken out of the economic mainstream. If one values one person as worth {42,000 ($3,500) per year in the GNP, the annual loss to the country in 1974 as a result of highway crashes alone was roughly N20 million ($35 million) .11 7Police Accident Record, 1976. 8op. cit 9op cit. loEstimates given by the Secretary of Insurance Association of Nigeria. 11'Daily Times edition of January 24, 1977. This is hypothetical as Hitch, J. and McKean, R. pointed out in their book, "The Econamics of Defense in the Nuclear Age," 1960, that there was no generally acceptable method of valuing human lives. .oesmmez-momon .eocosm mcceuopmm oppose ma omzmme vacuum mpcmcpuu< meepoe optomez we» ”mumsom ~m~.o~ Nmm.m em¢.mfi emfi.mH “mo.~m memfi omm.mH -m.e mmm.efl wmm.H~ mom.m~ cema omH.mH nmm.e oom.o~ em¢.oH com.¢~ mnmfl Hm~.m~ Hue.m amm.mH mmm.m em~.mm Nemfl Nae.eH oo~.m ~o~.oH wee.“ mee.nfi Head ¢m~.m~ mom.~ mmm.o~ -~.m oom.o~ onmfi setseea copper sense mcomswe accused momma msomsmm one omutoama coated mo .02 mo .02 Lace: ea .02 Peace mo .oz cameo _ouoh . mhIOBmH EH2 2H ”NEH—Hg 93 mag a 8 g N...” 0."nt Apart.fromlthese losses, highway crashes have brought to Nigerians a unique shock of sudden meaningless tragedy. It can be described as a technology shock. Nearly 75% of those killed or seriously injured were males -- mostly technically skilledmales.12 This preponderance of male deaths added to the fact that more males died in the recent civil war than females makes the state of affairs in highway traffic safety look even more gloomy. Unless the current trend and rate are reversed, highway accidents pose an awesome threat to the male demography in Nigeria. In total, the occurrence of traffic accidents on Nigerian roads inflicted an incalculable burden on the community - the burden of pain, fear and suffering imposed on one hand, and the ascertainable burden in the form of net loss of goods and services, due to death and injury and the expenditure of resources necessary to make good the effects of accidents (medical expenses, vehicle repairs, litiga- tions, insurance and administrative consts) on the other. This burden and overwhelming carnage on the nation's highways requires serious management attention since highway safety practices in Nigeria are complex, with responsibility diffused through many agencies and jurisdictions. To manage highway safety effectively, therefore, it must be given an administrative and organisational treatment and visibility as a program, There is also a similar need for a management model and guidelines for the administration of highway safety at all levels of government and in the private sector. _‘—-"0-ao”M.-u “~-.-H-O—-t~ - -.- 12Police Accident Report, 1976. (Examination and analysis of the raw data reveals this assertion). This is partially because most driving is done by men. 10 Now that the Federal Government is on the threshold of a new phase in policy to support initiatives and innovative approaches to the challenges of highway safety as evidenced in the establishment of a Road Safety Commission and the declaration of 1974 as "Road Safety Year," coupled with the rising insistence by the general public that a safe roadway environment be created and the availability of both human and non-human resources, it is, therefore, an appropriate time to undertake a study to assist in the formulation of policy and management guidelines in this area.13 The survey is needed. It is against this background that the importance of this survey can become more intelligible as a timely and necessary exercise . STATEMENT CF THE PROBLEM The importance of highways in Nigeria's transportation system has grown steadily through most of the decade. While it has increased personal and goods mobility and accessibility to a substantial extent, like most physical problems, it has also created a multitude of problems for Nigerians , prominent among which are traffic accidents . Indeed the unsafety presently prevailing on Nigeria's highway has become one of themost urgent national problems confronting the nation because safety on the nation's highways is a subject that affects virtually the entire population. Over the years, a myriad of public and private agencies had ererged to provide a multitude of management services and activities 13The RSC was inaugurated by Mr. L. O. Okunnu, the then Commissioner for Works and Housing in lagos on Thursday, April 11, 1968. 11 in response to Nigeria's unsafety problems. such a multi- jurisdictional situation required some ccordinative mechanism that is effective for integration and coordination of existing highway safety efforts among the various agencies providing management services. Paradoxically no such formal mechanism existed. It is therefore the purpose of this study to review the current role and involvement of these agencies in highway safety, examine their organizational structures and management practices in order to identify the principal problems inherent in the structures and management practices in highway safety and offer a managerent model of such a mechanism will encourage and facilitate the coordinated execution of unified planned actions by the diverse public and private agencies in highway safety in Nigeria. Purmse of the Survg/ This survey was undertaken basically to provide first hand information for subsequent analytical treatment of highway safety management practices in Nigeria. Thus the purposes of this survey were: 1 . To review the involvement of Federal , state and local governments and the private sector in the highway safety field. 2 . To present an overview of the current highway safety management process in Nigeria. 3. To identify the principal problems in the management of highway safety both in the public and private sectors . 12 4 . To recommend guidelines and a management model for Nigeria. 5. To review the magnitude and nature of the unsafety problem in Nigeria. SCOPE OF THE SURVEY The survey was limited to a sample of the total population of highway traffic safety practitioners throughout the whole Federation of Nigeria. Personal interviews with a small group of appropriate federal, state and local government officials and some private sector officials having close familiarity with the highway safety management practices in Nigeria were conducted. The 140 traffic safety practitioners sampled in the mailed questionnaire survey represented the whole population of highway traffic safety practitioners from all- parts of Nigeria. This target sample list was fairly representative of all the political areas and the highway safety practitioners in the country. It was convincingly felt that these respondents would be a fair sampling for the study. Limitations of the alrvey As identified above, the purposes of this survey were to identify the current management practices and environmental circumstances of the federal highway safety program as it was being implemented by the Road Safety Commission, state and local governments and to identify the related roles of public and. private agencies; review the problems in management of highway safety, and develop a model management system for broad application to federal , state and local highway safety programs and program management practices in the 13 private sectors. The model solution was intended to take a programmatic approach which could be adopted , for the most part, under current environmental circumstances . The scope of this survey did not include a technical analysis of how effective the current highway safety program, or any of its activities, are in reducing traffic fatalities and accidents. It did not intend to review the accident causation factors nor propose accident counter measures. The concentration was on a management analysis of public and private sectors' highway safety programs to ascertain approaches that would make the highway safety agencies or units more effective vehicles for program management. Researcher's Bias (Working Hypothesis) l. The writer has proceeded on the assumption that through improving the management practices of highway safety programs, a reduction in traffic fatalities and accidents would result due to the application of more effective countermeasures, improved coordination and conservation of resources . 2 . Comprehensive highway safety planning and programs could be developed by incorporating all significant highway safety activities within a single logical framework at the federal level. 3. Since most state and local governments are confronted with the same types of problems in managing large camprehens ive programs like education and agriculture , cannon approaches to the managerent of a highway safety program were feasible . 1 4 DEF INITION OF TWP/IS USED Accident In much of the recent literature and discussion dealing with the subject area of traffic safety, the term "accident" has been used loosely.l4 To avoid misleading ambiguity as a result of its general use, the term "accident" in the context of this survey was defined. as any event that results in unintended personal injury or property damage attributable directly or indirectly to the motion of an autambile or its load on the highway. Nana erent In its general form, management can be viewed as the coordina- tion of a variety of separate activities so that the combined results "0V8: as Efficiently as possible, toward a desired objective.15 Management Planning The process by which traffic safety managers assure that resources are obtained and used effectively and efficiently in the accarplishment of the traffic safety organization's objectives. Niagagerenj. Practice The process which all people who direct the activities of other people in traffic safety activities use to get their organiza- tion ' 3 work done . o~ ~‘*-‘~~ 14One of such definitions is contained in Baker, .‘I.S. and Stebbins, W.R., Jr.: Dictionary of Highway Traffic, Evansville, Illinois; Traffic Institute, Northwestern University, 1.964, pp. 134. 15Base, B.M. & Deep, S.D.: Current Pergaectives for fixagirgfianizationg Prentice-Hall, 1970. pp. 38. fisowu cum-m “m- 15 Managexent Process Refers to planning; programming; budgeting; program execution and control; evaluation . guerational Control The process of assuring that specific tasks are carried out effectively and efficiently. Qaestionnaire Refers to the questions developed to reflect the opinions of the respondents . Strategic Planning The process of deciding on objectives of the organization, on changes in these objectives, and on the policies that are to govern the acquisition, use, and disposition of these resources. 'Iraf f ic Safety Managetent The application of sound management principles and practices to unified programming for improved traffic movement and safety in both the public and private sectors. Traffic safety management in the context of this study is defined as the means -- human and Inn-human -- of achieving the maximum results from coordinated planning, control, and programming of traffic safety activities. Unsafety Will be used in this study to describe the nature of traffic problems discussed in this survey. 16 ABBRHIIATIONS USED RSC: Road Safety Commission PPBS: Flaming - Programming - Budgeting Systems PPSEE: Planning - Programming - Budgeting - Execution and Evaluation16 MB): NBnageIent by Objectives FHSC: Federal Highway Safety Commission N: Naira, this is Nigerian currency equivalent to $1.50 American. ORGANIZATION (1“ THE STUDY This dissertation is divided into five major chapters. All materials relating to the procedural aspects of the survey - interview and mailed questionnaire, letters, maps, the model legislative choree - are assembled in the appendices. Chapter I dealt with the statement of the problem and covered the background of the survey -- the problem, limitations of the survey, researcrer's bias, definition of terms used in this survey, abbre- viations, and organization of the study. In Chapter II, an extensive review of the literature pertinent to this stuiy is presented. Chapter III describes the survey methodology and techniques used - method of procedure, selection and description of the satple, Mlopment of the interview and mailed questionnaire, and methods for analysis of the data collected. 16This concept was developed by Peat, Marwick, Mitchell aid Co. Highway Safety Program Management and Reporting System, Vbl. I. Final Report on NHI‘SA FH-ll-6925, December, 1969. 17 Chapter IV describes the nature and magnitude of unsafety problems and highway safety practices; identifies principle problems in the managetent of highway safety management efforts; reviews the current involvement of federal , state and local goverments in the highway safety field; lists the specific points that were considered during the analytical phase of work following the survey and summarizes the findings of the survey. Chapter V presents the summary, conclusions , recommendations , deveth of the guidelines and management model for highway traffic safety programs in Nigeria, suggestions for further research, and a discussion. In the Bibliography , entries are ordered alphabetically with the surname of the author first and followed by the title of the publication, the publishers, place and date of publication. The title of the publication is underlined in order to minimize errors in referencing. CHAPTER II REVIEW CF THE LITERATURE Presented in this chapter is a review of the literature pertinent to this study. A literature search was conducted to obtain information documented in the literature regarding highway traffic safety management. This search was directed specifically at discovering substantive research findings, publications, study projects, conference and occasional papers that documented scientific and management information dealing with highway traffic safety manath and related problems . A range of sources was probed including data banks such as the National Highway Traffic Safety Administration (NH'I‘SA) . ‘Ihe preparatory search also relied on interviews with knowledgeable individuals and groups engaged in related research or otherwise hmledgeable in the problem area from a broad point of view. A corprehensive search of the literature revealed that the published discussion of the problem area under study was confined almost entirely to brief articles, project reports and papers that have appeared in conference proceedings during the past decade. Pore than fifty such publications were uncovered; but no studies of monograph or book dimensions were found. It is not intended to list these publications individually (many of which are outlined in the bibliography section of this thesis) but merely to review those that were relevant to the present study. 18 l9 'ihe great majority of the articles, project reports and conference papers were concerned not with highway traffic safety management per se but with ways and means of combating or preventing road accidents and unsafety problems. The largest number were devoted to describing highway traffic safety programs . Another group of plblications descibed similar programs established in certain countries and the United States. Still others set forth proposals for remedial measures in highway traffic safety. 1 The dominant factor in this abundance of publications was the lack of a single, uniformly agreed upon description of highway traffic safety management. They consisted instead of a variety of mays of viewing highway traffic safety. This multiciplicity of research of a fragmented nature was an inevitable consequence of the fact that highway safety managetent was erroneously viewed in the traffic accidents context. In addition , the studies tended to reflect the field of specialization of the authors. Thus, o'ie author presented an engineer's view (Steed, 1972); another erphasized the psychological aspects (Halddnen, 1958, Goldstein, 1964) and yet another, a system approach (Munson, 1971). A further search of the Thesis Library at Michigan State University; Traffic Safety Research Institute of the University of Michigan; University of California, Ios Angeles; University of Iagos; University of Ibadan; University of Ghana; Legon; Ahmadu kllo University, Zaria; Road Research Laboratory, London; and the Library of Congress, Washington disclosed no research studies that focussed directly on the present study. However, the review did reveal some related studies that erployed managerent models 20 and techniqueswhich had general applicability to this study. Mast of the information currently available can be catego- rized within three basic classes: 1. ' Conference papers and reports; 2. Recently completed studies and project reports in highway traffic safety; 3. Related studies that erployed management models and techniques which have general applicability to this survey . CONFEREML‘E PAPERS AND REPORTS REIJSVAN'I‘ 'IO HIGHWAY SAFETY mom/em . Of the entire list of relevant conference papers and reports, oily four contained any definitive discussion related to the subject of this study . In one of these, Dr. Jates Carnahanl of the Highway Traffic Safety Center, Michigan State University, in a paper presented to the Eastern and Western Highway Safety Management Workshops , defined highway safety managerent. According to Carnahan: "Highway safety managerent is the application of sound management principles and practices to highway safety programs and activities in order to improve safety at ’ the national, state and local level." Another relevant publication was a conference report entitled "A Plan for Improving Highway Safety Management " which contained recomrendations developed at two Highway Safety Managerent Workshops lCarnahan, James E. , Highway Safety Management: Concepts and Issues: A paper presented at the Eastern and Western Highway Safety Management Workshops , August 9 and September 16 , 1971, p. 4 . 21 in California and Florida in 1975.2 Of pertinence to this study were the recommendations contained on pages 5 and 7 of the report. Realizing the importance of human resources in the total highway safety management function it was concluded by the workshop study group that: "Human resources are an essential element of the national highway safety program. Success in highway safety management , like any other management problem depends on having qualified personnel at all levels of operation. Whether these persons are technicians, professionals or administrators, they should understand their special tasks contribute to the success of the system." rIhe report continued: "In fact the present lack of coordination among the Federal , State and Local Governments and. the private sector, may be partially due to highway safety personnel lacking awareness of the potential -- as well as the limitations -- of other segments of the highway safety system." The workshop study group also observed that: "Highway safety managers need a well developed structure which will permit managerent of comprehensive programs for the total system. Thus, it is necessary to bring about considerable improvement in the organizational framework at the local level and some improvements at the state level." Based on this observation , the work shop group recemmended that one way to solve highway safety management problems was by preroting more highway safety management conferences involving appropriate federal , regional , state and local agencies for the eXpressed purpose of planning and improving program management and procedures . 2National Conference of Governor '5 Highway Safety Representatives: "A plan for Improving Highway Safety Management: Recemendations developed at two Highway Safety Management Workshops , San Diego, California (August 8-10, 1972) and Clearwater Beach, Florida (September 15-17, 1971), pp. 5 & 7. 22 In another publication sponsored by the Autmotive Safety Foundation (1968) entitled "Highway Safety Program Management/'3 it was suggested that in the absence of detailed evaluative models in highway traffic safety management, the management planning staff should undertake three types of evaluative activities. These activities, the authors referred to as "the three evaluative component tasks , " and they were : l. Initiation of detailed periodic assessment of program and project activities by jurisdiction. 2. Continuation of monitoring of the traffic accident situation by the traffic data center generating periodic summaries by jurisdiction or smaller areas. 3. Periodic comparison of trends emerging in the accident data with trends in the asseserent data. The authors pointed out that each of these evaluation activities provided information for same facet of the management planning function. They concluded, however, that while most of the data required by the three recemmended evaluation activities could be easily collected by the operating jurisdictions, the specific variables and measures to be recorded could be specified in the coordination "negotiation" activities. Thus, the concept of "negotiation" was introduced to the highway safety management practice. It was this concept that interested the author of the present study. Munson (1971) in a subsequent work upheld the significance of this concept when he wrote: 3Autmotive Society Foundation : Highway Safety Program Management, Washington, D.C., 1968, pp. 38 & 39. 23 "the first need of the managerent planning staff in highway safety is strategies for negotiation." 4 Mmson further defined "negotations" in the highway traffic manage- ment context as interaction between the management planning staff and the operating units. The fourth relevant publication was a conference paper presented to the Road Research Organization for Fconomic Cooperation and Development in Paris (1971) . The paper was written by Wilde and his associates.5 Of significance to the present study were the two findings that: ' l . Highway safety organization structure is static . It comes to life when the people communicate through the system. 2 . Coordinated actions of any kind in highway safety management depend on effective communications . Though Wilde and his colleagues found it difficult to conceive of coordinated actions between two or more units if each one did not know what the others were doing , they agreed that this communication may occur between the management system and the various individual units or among the operating units themselves. To them, it was this 4Munson, M.J. & Others: The Safety Deronstrations Program for Oakland County, Michigan, Final Report. Task 4: Final Nanagerent System Recommendations. Prepared for Traffic Improvement Association of Oakland County , Michigan , November , 1971. Highway Traffic Safety Institute: The University of Michigan, Ann Arbor, 1971, p. 35. 5Wilde, G.J.S., Sheppard, D. & Wind, G. Road Safety Campaigns, desigriand evaluation: The use of mass communications for the modification of road use behaviors . Road Research Organization for Economic Cooperation and Developrent, Paris, 1971. 24 communication requirement which underlied the reliance on information flows to define the relationships between the functional segments of any management model . RELATED COVEPIE'I'ED STUDIES AND PROJECT REPORTS ON HIGHWAY TRAFFIC SAFETY During the course of the interview research and search for pertinent literature on the subject matter, the author learned of several other on—going or recently completed studies and project reports on highway traffic safety. In the case of the completed studies, copies of the study reports were obtained; and in the case of the on-going projects, the author interviewed the individuals in charge and later received copies of their completed study reports. A few of these studies together with those examined during the preliminary exploration for pertinent literature in the libraries are listed and briefly described below. Safety demnstration program for Oakland County, Michigan study was coordinated by M.J. Munson6 and his associates on behalf of the Highway Safety Research Institute, The University of Michigan, for the Traffic Improvement Association (TIA) of Oakland County, Michigan. The main purposes of the report were to idetify strengths and weaknesses in the existing traffic management operation, devise recommendations and an incremental improvement of that operation, and to design and test management techniques for periodic assessment of the county traffic safety situation. 60p. cit., p. 29. 25 Of interest to the present study was the following statement taken from.the recommendations of the report: "Mechanisms must be established for providing continuous relationships among all concerns in the highway safety field primarily via higher levels of government or in groups according to program needs. The relationship between these operating units and the central unit staff should be based on explicit lines of authority. This fact constitutes the uniqueness of highway traffic safety management". The report also recognized the establishment of a non- government traffic association as a basic ingredient to highway safety management practices. However, the report warned that such an association must not have ties to a specific jurisdiction. The gational Highway Safety Needs Report The National Highway Safety Report7 was conducted in response to a directive by Congress to provide the basis for evaluating the continuing highway safety programs authorized under Title 23, U.S.C. Therefore, it dealt primarily with highway safety programs and highway safety construction programs. A significant point in the findings of the report was the emphasis placed on the role of management support activities in highway traffic safety. According to the report: 1. "No countermeasure can be developed, implemented or evaluated without management support. This must be a coordinated logical process, beginning with problem identification and analysis, and continuing through programming implementation, and evaluation of results." . 7U.S. Department of Transportation: The National Highway Safety Needs Report: Report of the Secretary of Transportation to the'United States Congress pursuant to Section 225, of the ffighway Safety Act of 1973, washington, D.C., April 1976, pp. VII-I. 26 2. " (minagement) support activities relate to efficient administration covering the capability to plan, organize , direct , control and evaluate countermeasure implerentation in a timely cost-effective manner. mile no support activity will provide directly for reductions in traffic accidents , fatalities and injuries, without these functions , safety program implementation would not be possible." 3 . "There are seven categories of support activities: inventory, evaluation , data analysis , ADP systems , uniform standards, laws and adjudication and manpower training. Research, developrent, and deronstration are other important support functions. . . " Transportation Decision-making: A Guide to Social and Ehviromental Considerations: The report, Transportation Decision-Making -- A Guide to Social and Enviromental Cons iderations8 was conducted by the Transportation Research Board in 1975. The report presented an integrated approach for systematically incorporating social , economic and environmental factors into transportation planning and design. The four key relevant findings to report were: 1. "Any decision in highway planning affects many groups. Choices on what transportation mode is utilized, what kind of service is provided, which of several possible corridors is selected, what decisions are made about location and design standards, although seemingly only technical decisions, almost always have significant social and environmental implications. The total set of these effects on all groups must be considered with particular attention paid to the differential effects -- which groups gain and which lose . Although a change in the transportation system (such as the introduction of one-way street) may bring benefits to many people in an area, sore particular groups may bear a high cost or receive little or no benefit. Every decision about highways will involve the need to balance gains to 8Transportation Research Board: Transportation Decision-Making: A Guide to Social and Environmental Considerations; National COOperative Highway Research Program Report 156. Washington, D.C . 1975, pp. 6, 12, 16, & 26. 27 some interests against losses to others. It is therefore essential that the process of planning, designing, implementing and operating highway systems explicitly recognize and take into account such issues of social equity." 2. "The planning and design of highway system is as much a political as it is a technical one. Effective informed participation of the community -- federal, state, and local agencies and officials, interest groups and individual citizen -- is therefore necessary in all phases of highway planning, starting during statewide and urban area system planning and continuing through corridor, location, and design studies, and even into construction. Such interaction helps the highway agency to identify and predict both the incidence and the magnitude of social and environmental impacts and to learn what issues various people consider to be important. Also, community groups can serve as a useful source of suggestions for solutions to transportation and related community problems. Different levels of participation should be provided depending on interest. Participation may range from general awareness to periodic attendance to intensive involvement. The public must provide inputs to the decision-making process.. ." 3. "Flexibility is required in the conduct of highway management. New information will. emerge from research and studies, conditions may change (economic, political, social and technological). In response, management must be able to allocate resources to new activities, adjust allocations to reflect changes in needs and priorities, and reshape the planning process to reflect these modifications. At the same time, the planning process must be decisive, and realistically, managerent will face certain constraints -- in budget, in available manpower, in the amount of time that can be spent on a ‘ particular project. Thus, there is a need for a timetable, a work program, and a personnel assignment plan. The need for flexibility and responsiveness, but achieving both takes careful planning and managing." 4. "The best way to find out about people's highway transportation preferences is to ask them how they feel about specific alternatives and why they feel that may. Sore people will stand to gain from a particular alternative, others will lose. By identifying who will gain and who will be harmed, the planner can modify alternatives to reduce negative impacts and increase benefits and can develop compensatory programs. " 28 As important and pertinent as these four key findings were to the present study, the innovative concept of "differential effects" developed in this report was the greatest contribution to the highway safety field and consequently to this study. Highway Safety Management Guidelines for State Governments Highway Safety Management (hidelines for State Governments9 prepared by Peat, Marwick, Livingston & Coy, under the auspices of the National Highway Safety Bureau, was a surly of highway safety administration and management practices in various states of the mited States. The guidelines in this study were intended to help state officials obtain the maximum benefit from the provisions of the Highway Safety Act of 1966 and especially from federal and state funds and thereby develop an effective highway safety program that would reduce the number of crashes and fatalities. The report suggested means for managing highway safety as a single program at the state level. The main conclusiois of the report of importance to the present study were: 1. "Managing a program requires more than simply managing a group of activities or organizations that perform highway safety activities. The official designated as the state highway safety program manager must have an overview of all highway safety activities to ensure that they individually and collectively support the objective of reducing the nutter and severity of crashes. This kind of management is called program management. " 2 . "Highway safety officials require management information on a fairly routine basis to judge relative values of highway safety activities , take steps to improve their V—vfi w. 9Peat , Marwick , Livingston a. C0 .: Highway Safe Management Guidelines for State Governments. A report prepared or Department of Transportation National Highway Safety Bureau, contract No . FH-l 1-6 627 , Washington, D.C., June 1968, pp. 5, 6, 57, 85, a. 126. 29 efficiency, diagnose the performance of the highway safety system, and carry out the program managerent process. " 3 . "The participation of many state and local agencies in the highway safety program will require that the program manager act with discretion in what is basically a political environment. The prerogatives of each political entity must be fully respected in the development and performance of the program. " 4 . "The key managerial decision during program execution and control is to change, drop, or continue an operating program. This may require promulgation of an executive order to adjust or discontinue a program elerent. Adjustment might include a change in objectives, schedule, or resources, a shift in responsibility, or a change in methodology. " 5. "The key problem in the managetent of highway safety activities is not the lack of detailed data on the specific highway safety programs, but the lack of organization and synthesis of the significant information content of this data for use by highway safety managers and decision-makers. " National Highway Safety Program Management Requi‘retents for Ipcal ities The Highway Safety Managerent Guidelines for State Governments developed by Peat, Marwick and Livingston & Co. which was reviewed above suggested means for managing highway safety as a single program at the state level. There was a similar need for managerent guidelines for the administration of highway safety at the local level. Tb develop local guidelines, Peat, Marwick, Livingston & Co., performed a survey of local highway safety administrations. The purpose of this report10 was to present a review of local highway traffic safety managerent practices with reference to the national 10Peat, Marwick & Livingston & Co. : National Highway Safety Program Managerent Requirerents for Localities : Study Report prepared for the National Highway Safety Bureau, Washington, D.C. June 1969, pp. 8, 13, 27, 37. 30 highway safety program. The results of this survey indicated that several major changes were required in the management , organization and procedures of local jurisdictiois before highway safety can be effectively managed as a statewide program. This contract identified those guidelines. The field survey revealed several major problems facing metropolitan areas in the administration of the highway safety program. 0f significance to the present study were the following: 1. "(he of the major changes that will have to be made before effective program managetent of highway safety at the local level can be realized is the development of regional or metropolitan wide organizations which have the authority to plan, evaluate, and coordinate ‘ highway safety programs within the included area and be the principal contact with the state government. " 2 . "Highway safety program managerent below the state quvenments and the Federal Government. The state must provide program planning guidance and technical assistance in the form of both personnel and guidance documents. The Federal Goverment must provide planning and administration money for the establishment of the metropolitan (regional) organizations and assist them to implerent highway safety programs . " 3. "No significant improvements in highway safety program managerent will be accorplished unless both the state governments and their included political subdivisions provide organizational and prograrmatic treatment of highway safety activities. The erphasis oi improving local goverment managerent practices must be addressed primarily to urban areas. It is in the metropolitan areas, however, that local goverment participation in the highway safety process becores complex. In addition, cities play the most prominent role in highway safety and occupy the primary position for controlling or guiding highway safety developments at the metropolitan commmity level . Since highway safety deals with the mobility of population, the metrOpolitan area is more meaningful than the artificial boundaries of cities, towns and villages. " 4. 5. 6. 31 "It is essential that highway safety planning be uniform for an entire metropolitan area. Therefore, such planning should be the responsibility of the central organization established for that metropolitan area or region. " "The local level management process can be divided into five phases: planning and organization; multi-year programming; budgeting; execution , monitoring and control; and evaluation. Of these five, the first and last are the most important to the success of the highway safety program at the local level . The other phases are restricted by traditional administrative practices and organizational structures and , therefore , will not be significantly influenced by the highway safety program. " "The solution to the problem of organizing for metropolitan highway safety lies in developing or utilizing a regional organization that can coordinate the activities of all participating govermental units." Communication Action Program for Traffic Safety 1 Guides I-IX The Community Action Program for Traffic Safety, Guides I-IX, 12 report was conducted by Powell, M.D. , et al. for the National Association of Counties Research Foundation (NACORF) . With annotated diagrams, the report suggested four possible organizational structures for highway traffic safety management. The Traffic Safety Department The Traffic Safety Commission The Office of Traffic Safety Coordination The Traffic Safety Association. Of interest to the present study was the final organizational structure proposed by the NACRCF Report, "Traffic Safety Association. " 12 Powell, M.D., et a1. Community Action Program for Traffic Safety: Guides I-IX, NAOORF Final Report on NHTSA, FH-ll709l, Washington, D.C. September 1970. 32 This structure called for a non-governmental establishment initiated by private indivudals. Such an association, having no ties to specific jurisdictions could be applicable in a multiple- jurisdicticnal situation such as presented in Nigeria. Managing Highway Safety: Recommendations for Strengthening Highway Safety Managerent Practices in States and Localities The mtor Vehicle Manufacturers Association of the United States, Inc. (MVMA) engaged Peat, Marwick, Mitchell and Co. (Pm & Co.) to analyze the current environment of state and local highway safety program managetent, and to define ways in which the management practices of these programs can be strengthened. This study entitled: Managing Highway Safety: Recommendations for Strengthening Highway Safety Managetent Practices in States and Localities13 was designed to assist managers of state aid local highway programs in meeting the intentions of Congress as specified in the Highway Safety Act of 1966. The opinions, findings and conclusions expressed in this report pertinent to the present study were as follows: 1 . "There appears to be a substantial lack of concurrence arong professionals associated with highway safety managetent on what strategies and approaches are the most effective in reducing fatalities and accidents. 'Ihis undoubtedly complicates effective decision-making in highway safety program management. " 2 . "Evaluation suffers from a lack of recognition and credibility as a policy development and decision tool, partly due to the lack of incentives in this system for their use." 13Peat, Marwick, Mitchell & Co.: Managing Highway Safety Wendations for Strengthening Highway Safety Management Practices in States and Localities : Prepared for the Mator Vehicle Manufacturer ' 3 Association of the United States, Inc., Washington, D.C., August, 1974, pp. E2, E3, 14, 33. 33 3. "Highway safety agency field staff should be resident in the regional districts they serve. This will establish a working relationship with the private sector and highway safety agencies in the districts. " 4 . "The key to gaining private sector individual and organizational support appears to be enhancing the public image of the organizations and individual participants . " A more comprehensive list of relevant study reports and projects is included in the bibliography section of this thesis. RELATED STUDIES TEXT EMPLOYED MANAGE/{EMT MODELS AND TECHNIQJES APPLICABLE TO THIS SURVEY Because of the general applicability of some models and tech- niques to managetent situation and practices , it was decided to review some of these management models and techniques that have been used in other studies and which have relative applicability to the present survey. Mathies (1976) writing about manageient models stated: "in any organization, you find people using specialized methods of working that outsiders could not know These are the "practices" of that specific business or organization. The one practice that all organizations have in comon is managetent model, but even here the exact management model practices vary. " The relative advantage of manath models and techniques in management practices were pointed out by Lyndall Urwick (1937) . According to Lyndall Urwick: "managerent model is lightfooted. It can adapt itself to changed circumstances, think out fresh combinations and can peer into the future."14 14Lyndall Urwick: A British Consultant, Adapted from the Managerent System by Leslie Mathies, John Wiley & Sons, New York, 1976, p. 199. Ltwick useful 34 further added: "on the other hand, faced with new and unaccustomed situations , practice can only explore them (models) tentatively ....... by trial and error. " Mathies (1976) also indicated that managerent models are in managing organizations. Beckett asked: "what are the mysterious keys that can open the door to improvement in any organization?"15 Mathies answered: Bit he And he "After our own years of practice in the systems and manath field, we concluded that they are managerent models." lamented : "the problem first is to discover them. Then the job is to state them so that we can teach them to others. Wemustbeabletopassthemontopeoplecoming into managerent improverent wor . " concluded: "only in this may can a true managetent model develop. Nobody invents models or techniques ..... people (who both mrk and think) discover them." The use of management models and techniques in managerent studies was highlighted by Henri Fayol (1949) -- the famous industrialist and student of management. Delivering a lecture to his newly hired eigineers who were managexent trainees, he asserted: "The theoretical knowledge which you possess will permit you to assimilate quickly all details of any kind whatsoever without managerent models, principles and techniques, one is in darkness and chaos. The model is the lighthouse fixing the bearings. But it can only serve those who already know the may into the port......"16 1f’Mathies Ieslie: Management System: John Wiley, New York, 1976, p. 199. l6Fayol, Henri: General and Industrial Management, McGraw Hill, New York, 1971, p. 16. 35 And Professor Harold Koontz recognizing the use of techniques in management cemented: "There's a question in my mind as to whether enough attention has been given to the development of a conceptual framework of principles from which to approach the problem of improving management. It appears that much of the research being undertaken, and much of the effort to train managers, has been proceeding from a premise: that exchanges of experience, with emphasis on techniques, are a means for attacking the problem. "17 Based on this background, the author reviewed some of the generally practiced managetent models which related to the present eirvey . Fayol ' s Nbdel This model owes its orientation to its founder, Henri Fayol (1916). For 30 years he vas the chief executive of the great French mining combine kncvm as Commanbault where he applied this model. Fayol's analysis of administration as a separate function vas his unique and orginal addition to the body of management theory. His now famous monography, entitled "General and Industrial Managerent" vas published in Europe in 1916. Although this work was rot publisled in America until 1949, Fayol's model was brought to the attention of American Scholars in 1937 by Lyndall Urwick.18 Fayol '3 model consisted of fourteen general principles of management . They included such ideas as span of control, unity of comand, esprit de corps, and decentralizatim. Throughout his treatise, he stressed the universality of managerent principles. * 17Harold Koontz, an American Professor of Managerent: The Staterent was adapted from Leslie Mathies, "The Managetent fistem - Wstems are for People" - John Wiley & Sons: New York, 1976, p. 199. l80p. cit. 36 Again and again he pointed out that these applied not only to hisiness enterprises but also to political, religious, social and other undertakings. Of significance to the present study about the Fayol '5 model is Fayol's further division of management into five functions: planning, organizing, commanding, coordinating and controlling. Also, of significance was Fayol's great emphasis on planning as a creative and continuing process which seeks a determination of w is to be done, w it is to be done, Wlfl it is to be done, W10 is responsible for doing it and WHEN it is to be done. MK) —* It is now twenty-three years since Peter F. Drucker (1964) wrote the "Practice of Managetent"19 and developed the phrase "managerent by objectives" which has becore a globally practiced managerent model in organizations. Drucker stressed the progress that was made by the Ford Motor Company since World War II on the basis of ME). In his study and concept of the corporation, re outlined the results of this company's study of managerent policy and the organization of General Mocors. The usefulness of Drucker's observations and outline seered totally obvious. This is attested to by the number of articles and books published since Drucker's book appeared on Mm. It also testifies to the success of MB) as a powerful managerent tool. (McGregor 1957, Wickens 1968 , Humble 1968, Wickstrom 1968, Reddin 1972, Hives 1971, A311 1973, Newland 1974, Brown 1974, Malek 1975, Ryan 1976). w. l9 Drucker, P.F.: The Practice_of Managerent: Harper & Brothers, New York, 1954. 37 Edward Ryan (1976) in a comparative study of selected federal experiences with the fiscal year 1975 program20 concluded that IVE) mas effective to the highest level of line managetent that is cormitted to it. Ash and Malek (1973) using the ME) model were mandated by President Nixon to develop a program whereby the American public could be certain that the best possible benefits were resulting from the expenditures of their tax dollarle. They agreed too that MBO vas one answer to some of the managerial problems in the executive branch. Malek (1974) who had been involved in M30 at the Department of Health, Education and Welfare together with Ash (1974) in a subsequent work cemented: "MBO is a way of doing what cores naturally. It isn't a new process. It isn't a bunch of reports. It isn't a set of series of meetings.... It is a new (managetent) style, not a new process."22 Davies (1975) from stuiies of sore educational organizations in Britain discovered that educational organizations studied were looking to ME) to provide quite different brands of administrative sa [vat ion . 20Ryan, Fdward J .: Managerent by Objectives in Perspective: A gggrative Study of Selected Federal mience with Fiscal Year 1 Program. (DJ-LA. dissertation) George Washington University, 1976. 21Ash, Roy & Malek, Fredrick: Set of meroranda, Implerentations of President's New Management Emphasis J Executive Office of the President, Office of Manage'tent and Budget, Washington, D.C. 19th April, 1973. 22 Malek, Fredrick: Managing for Results in the Federal Government; Business Horizons, April, 1974, p. 24. 38 The various findings and conclusions about the usefulness of the MK) model as a management tool and the definition of ME) (Humble 1968) as “making the organization define its objectives at various levels of managerent and assisting themanager to define his own key results or key effectiveness areas within this total framework. . . . . ." further endorsed the applicability of the model to highway safety management. gas The development of PPBS represented one of the most important and comprehensive examples of the application of the system approach to the management of complex organizations. This assertion is attested to by the wealth of literature on PPBS: Steiner (1965), Burkhead (1966), Argenti (1969) , Alioto (1969) , Eidel and Nagle (1970), Schick (1971), Merevitz and Sosnick (1971), Bains (1972), Alkin (1973), James (1973), Frank (1973), Mann (1973), MecNamara and Burns (1974), Davies (1974). PPBS was initially developed by the Department of Defense between 1961 and 196523. This new management approach proved so successful that in 1965, the President of the United States directed that it should be introduced into all departments of the Federal Government. Since that time, PPBS systems have been developed by nurerous states, universities, hospitals, local goverment agencies and other organizations . fi—W 23For a discussion of the developrent of PPBS within the Department of Defense, see Mikan, N.R. & Hitch, C.J., The Economics of Defense in the Nuclear Age, Harvard University Press, Cambridge, Mass., 1960 and Hitsch, C.J. "Decision-Making for Defense," University of California Press, Berkeley, CA, 1965. 39 A 1968 survey for the subcommittee on Economy in Government of the Joint Economic Committee of the Congress found that tmnty— eight states were developing PPBS . 24 Hamelman (1970) in a survey of applications of PPBS to universities discovered that many universities have turned to PPBS to find answers to their decision-making dilemmas.25 Dyer (1970) in a subsequent survey of the use of PPBS in a Public System of Higher Education found truth in Hamelman's discovery.26 Steinberg and Nielsen (1972) in a survey-study of the use of PPBS in a school district concluded that PPBS can also be applied at the level of the individual organization.27 Although PPBS is a widely acclaimed management model, it is difficult to set forth a simple definition of PPBS. Essentially, according to Steiner28 (1965) , it represents a comprehensive process for creating a more effective decision-making system for public agencies. It also attewpts to integrate many complex organizational activities which were only loosely tied together. 24Innovations in Planning, Programming, Budgeting Systems in State and local governments. A cotpendium of papers submitted to subcommittee on Economy in Government of the Joint Economic Committee, 9lst Congress, 1st session, 1969. 25Hamelmlan, P.W.: Amlications of PPBS to Universities: Missions, Matricgg and University Manageient: Academy of Management Journal, March 1970, pp. 35-48. 26Dyer, Jares S.: The Use of PPBS in a Pyblic SYsten of Higher Education: Is it Cost-Effective? Academy of Management Journal, September 1970, pp. 285-7300. 27Steinberg, H.T. & Nielsen, R.A.: PPBS for a School District management Controls, July 1971, pp. 136-143. 28Steiner, George A.: Program Budgettipg: Business Contribution to Government Managexent: Business Horizons, Spring, 1965, pp. 43-52. 4o awe Argenti(l969) in his analysis of sore organizations discovered that sore of the manifestations of PPBS were not suitable for their proclaimed purpose. He suggested that a different form of PPBS or an allied technique could be much more profitably etployed and possibly with less dislocation to the organization.29 In response to this suggestion, Peat, Marwick, Mitchell and 00.30 designed the PPBEE model which was used in their survey of Highway Safety Program Managetent and Reporting System. This model vas subsequently used by Peat, Marwick, Livingston & Co. in their survey of National Highway Safety Program Managerent Requirerents for localities in 1969. The feedback. from the two surveys on the usefulness of PPBELE has been favorable and excellent. Of interest to the present study is how PPBEE: mas being applied to managerent practices in previous surveys. Peat Associations (1969) defined managerent process in the context of PPBEE and concluded that PPBEE is the most appropriate technique that can be used to analyze managerent practices in the highway traffic safety field. The author eIployed the use of this model in this survey and it has found to be very useful. astems Approach Wetere management model conceptualizes the organizational units as being arranged and operated as a system. Each segment of the 29Argenti, J.: Managerent techniques; Allen and Umvin, 1969. 30Peat, Marwick, Mitchell & Co. : Highway Safety Program Managerent and Reporting System J Vol . I: system Description: Final Report on NH'I‘SA, FH-11-6925. 41 total or each sub-system is viewed as a distinct entity and there is a relationship or contribution of each sub-system to the next level in the hierarchical structure.31 The system approach continues to be applied increasingly in human affairs, from the view of the individual as a complex system of interacting components to a large scale , man-machine systems involving many organizations . The systems approach model has proved appropriate and useful in a wide variety of contexts - military missions (Quade 1964), space exploration (Thore 8. Willard 1966) , and health systems (Ludwig, 1951). astems approach to management has emerged over the past two decades as a vigorous, lively and powerful management tool that Ellis and Ludwig (1962) had suggested in an over exaggerated manner that "the systems era" should be a more accurate descriptive phrase for 32 our age . Relevant to the present study about systems approach was Johnson ' s statetent : 33 "Systems analysis provides a framework within which problems are identified , alternative solutions are evaluated, and difficult choices are made in the allocation of resources." The use of systems approach in highway traffic safety was mentioned by Arthur D. Little, Jr. (1966) when he declared: "Highway safety is a systems matter. The system is characterized not only by its cotplexi ty but also by “...-p..-- ovofl~m 31Johnson, R.A. 8. Others: The Theory and Management 2f Systems, 3rd ed. McGraw Hill, New York, 1973. 321311.115, D.C. 8. Ludwig, F.J. Systems Philosophy: Prentice Hall, Inc. Englewood Cliffs, N.J., 1962, p. 2. 33 op. cit., p. l. 42 the high degree of interconnectedness and inter- dependence of many factors. . . . . . The system nature of the highway safety problem must be appreciated both for proper investigation of its components and for the developrent and evaluation of remedies. .. ."34 The usefulness of the systems approach in highway safety was also pointed out by Peat and Associates in their Report on Highway Safety Managerent Guidelines for State Governments (1968) . The report stated: "Further technological developrent in the highway safety field will be carried on within the context of the systems approach, which deals with the interaction of the driver, vehicle, and roadway. " The report also noted: "certainly, highway safety is a field that is corplex and varied enough to benefit from the systems approach to management. " 5 Gilbertian Nbdel The views of William Schwenk Gilbert36 have been frequently cited in many fields and studies (Casasco 1970, Holbert 1976, Mathies 1976) but his model for the world of highway safety manage- ment has been strangely neglected. Yet this model may be one of the most powerful tools for the highway safety executive in understanding the subtleties and dynamics of his position. 34Arthur D. Little, Jr. The State of the Art of Traffic Safety - a critical review and analysis of the technical information on factors affecting traffic safety: Summary Report prepared for Autorobile Manufacturers Association, Inc. , June 1966, p. 31. 35op. cit., p. l. 36 Gilbert, William was a British 'I'heorist, 1806-1872. 43 The importance of the Gilbertian model to the present study lies in Gilbert‘s classical five-fold View of the tasks of the manager: planning, organizing, staffing, motivating, and controlling and his concluding remarks. According to Gilbert: "all of the work of the manager in planning, organizing, staffing and motivating will go for naught if the whole integrative system is not controlled under the overview of the three desiderata of feedback , measurerent and assessment. "37 Likert's Four Systems Nigel 38 Likert and his associates thoroughly studied many organiza- tions and their effectiveness. Managerial styles and their related organizational factors were identified and grouped into four systems which Likert christened as the "Likert fOur systems model. " Likert nared system 1 exploitative-authoritative , system 2 benevolent—autl'oritative, system 3 consultative and system 4 participative group . Of pertinence to the present study is system 4 of Likert's model - participative group which Likert and his associates described as follows: "System 4 managerent is highly participative with a greater deal of confidence and trust in subordinates . This system is marked by effective team work and individuals feel motivated to achieve the goals of the organization. Commmication is domvard and upward, as well as with peers. Decision-making is well integrated at all levels of the organization. Goals are set primarily by the group with little or no resistance to the aims..."39 37I-lolbert, N.B.: A Gilbertian Nbdel for Easiness Management, 160 Risiness Topics, Michigan State University, Autum, 1976, p. 33. 38Likert, Rensis: New patterns of managetent: NbGraw Hill, New York, 1961. 39Weihrich, Heinz: MBO in Four Management astems: MSU Business Topics, Michigan State UniversityfAutumn, 1976, p. 52. 44 Likert and his colleagues in subsequent studies found that over a period of time organizations that moved toward system 4 also became more effective. Similarly, Weihrich 40 suggested that most organizations will becote more effective when the steps in the MK) process are carried out in ways approximating those described in ejstem 4. SUNMARY A review of the literature presented in this chapter included: 1 . some relevant conference publications on highmay traffic safety manageient; 2. recently completed studies, projects and reports in highmay traffic safety, and 3 . related managetent models and techniques that had been etployed in studies similar to this study. A thorough review of the literature disclosed no research that focused directly on highway traffic safety managerent. A review of applicable managerent models and highmay safety management studies, projects and reports were presented with specific and pertinent content areas outlined and analyzed. The literature offered very little guidance as to wtat can be assessed, and more important, the methods and criteria that can be used to assess the contents and scope of highway traffic 40Weihrich, Heinz: A Study of the Integration. of Management a objectives with key managerial activities and the relationship to selected effectiveness measures. (Ph.D. dissertation, Lhiversity of California, los Angeles, 1973) safety management. The literature review, however, reinforced the author's view that highway safety management is an inevitable part of any comprehensive highway safety programs Chapter III will describe in detail the methodology and techniques used in this survey. CHAPTER III SURVEY DESIGN AND MY The preceding chapter presented a review of the literature pertinent to this survey. This chapter describes the techniques and methodology used to carry out the survey. NATURE OF STUDY This study was a descriptive study of highway safety nanagenent practices in Nigeria. The surly utilized the problem-oriented and management System approaches . The problan-oriented approach was used in the belief that highway msafety problems are too often defined only in terms of traditional countermeasure programs or professional viewpoints. This not only severely harpers accurate problen identification hit it also limits solutions to those problens which are related to single programs or agencies. The managenent systen was used to develop the managerent nodal. Figure 3.1 depicts the analytical franework of the managenent systen used. 'Ihe buoapproacheswere, therefore, adoptedtoassurethatthe proposedmodelandguidelines inChapterVwereaimedat specific and well defined highway safety management problems. To achieve the objectives of the study discussed in Chapter I, four major activities were urxdertaken: Statistics and data were collected on traffic accidents, drivers, vehicles, roads, highway safety expenditures, and on the highway transportation budget . 46 47 Figure 3. 1: The.Management System Target #1 Highway Safety (pi management Structure and Organization Target #2 MANAGEMENT SYSTEM Highway Safety Planning ‘— W Programing Management Budgeting Execution & Control Practices Evaluation Target #3 Highway Safety Intergovernmental and Private ‘* Organization Relationships 48 The members of the mad Safety Commission, the state's traffic safety coordinators and knowledgeable persons in highway traffic safety were interviewed to obtain a preliminary assessment of the country's traffic safety management practices. Persons having highway safety responsibilities throughout the country were surveyed through a mailed questionnaire . A selected panel of experts in Nigeria reviewed the questionnaires and recommendations . It became evident at the outset that the problem identification approach in this study could not rest solely upon the analysis of the quantitative data collected. For this reason, the opinions of highway traffic practitioners regarding basic management problems and needs were obtained. The methods used for obtaining the opinions were: 1. In-depth personal interviews of a small selected group of highway traffic practitioners with management functions . 2. A mailed questionnaire to a wider group of highway traffic practitioners with either administrative or operational functions . The advantage of a mail-out survey technique in highway traffic safety was aptly noted by thson, et al. (1971) . According to Munson: "The mail-out survey technique is a relatively quick means of assessing the relative importance of various traffic safety problems as perceived by practitioners in the field. It involves little effort by the respondent and takes little time for analysis of the data. The information generated provides excellent back-up reference to the task group deliberations . " SAMPLE SEIEUI‘ION The initial contacts and sample selection were made through the Ibad Safety Commission (RSC) headquarters in Lagos. The author worked 1I‘Ilunson, M.J. & Others: The SafetLDemonstration Progam for (hkland County, Michigan, Task 4: Final NanagjeLment System Recommendation. Mien Hills, Michigan 35103, November, 1971. 49 throughthestaffoftheRmmordertoprepareatargetpopulation from the files which contained information about various organizations and individuals involved in higtnay safety managenent practices in Nigeria. The target population was culprised of individuals from the following traffic safety related areas: Goverrment officials at federal, state, and local levels with management functions, e.g. state coordinators. Goverrment officials at federal , state and local levels with operational functions, e.g. police. Professional associations which had highway safety related activities, e.g. highway engineers. Knowledgeable persons closely involved in or concerned with highway safety activities , e .g . Dr. Sojobi of University of Lagos, Nigeria. Private establisl'ments involved in traffic safety operations, e.g. insurance and auto companies. Emmanitarian groups which showed interest in highway safety activities, e.g. the Men's league and Red Cross Society. This process produced an initial list of 161 practitioners, out of which 21 were selected for the interview. Interview A small group was selected from the target population listed. This stall group was comprised of the appropriate federal, state and local officials having close familiarity with highway safety management practices in Nigeria. 'Ihese officials were: 50 The Chairman of the mad Safety Commission TheSecretaryoftheRoadSafetyCormissioi Four state traffic safety coordinators (two from the Southern and Northern States respectively) Military governors who have showm much interest in traffic safety (one from Lagos State, one from Bendel State, one fromOgunState, one fromOyoStateandonefrom Ondo State) Commissioner for Transport Director of Army Supply & Transport Corps Commissioner for Petroleum Head of the Traffic Division of the Nigeria Police Force Director of Nigeria Transporters Union Director of Federal Information Service , Iagos Professor Nabogunje Editor, Daily Times of Nigeria Editor, Daily Sketch of Nigeria Dr. Bakare, University 'of Ibadan. A small group was selected for interview as several factors mitigated against the personal interview meti'nd for obtaining opinion - such factors as: l . Time commitment for both interviewer and interviewees . 2. The large number of government jurisdictions in the country coupled with the diversity of practitioners and professionals in each jurisdiction. 3 . The exhorbitant cost involved in travelling across the whole country. 51 4. 'The requirement for interview'protocol. 5. Avoiding duplication of opinions and responses to questionnaires by federal, state and local officials since there existed a sort of homogenous management practices among them. Mailed Survey of Practitioners A wider group was selected from the target population listed to receive the mailed.questicnnaire. The target population.was defined as all persons involved directly or indirectly in traffic safety activities in all political jurisdictions in the country (excluding the twenty-one ramea.of the persons to be interviewed). Because of the small low target population the whole population of 140 was used. The target population of 140 individuals was listed and tabulated.2 The list slowed the individual's address, title, profession, jurisdiction and responsibilities in the highway safety field. It was assured that this target sample list would be representative of all political areas and highway safety practitioners in the country. QUESTIONNAIRE DEVELOPMENT Before the development of the questionnaire, a personal interview'was held with Professor Robert Gustafscn, the author's academdcradviser, and with.Dr..Mg J. Munson, a stafflmeMber responsible for highway traffic research at the Highway Safety Research Institute , university of.Michigan,.Ann Arbor, to discuss the areasaof information 2The practitioners are not listed in this thesis because of the promise made by the author to keep all participants in the mailed survey secret. ‘52 pertinenttothestudy. Furtherinfonmationconcerningthetypes of material that would aid the development of the questionnaire was sought from previous research work on the subject . An examination was made of available literature and other materials (microfilms) related to highway safety management in Nigeria specifically and other countries generally. gestimnaire Design In order to formulate the statements (items) contained in the proposed questionnaire, it was first necessary to determine the important information appropriate to the survey being undertaken. This relevant information was gathered in the following target areas: 1 . Highway safety management structure and organization. 2 . Highway safety management practices in Nigeria -- planning, programming, budgeting, control and evaluation. 3 . Highway safety intergovernmental and private organization relationships . A list of potential problem statements was developed in which the respondents were asked to indicate their view on each question as related to this survey. Interview Estiomaire Prior to conducting the interviews, a questionnaire based oi the information in the three target areas listed above was developed. Thesequestiomswereusedasaguideinconducting the interviews . Slggested questions based on the following target 53 areasareincltriedinApperdicesA,B,andC. fit Area 1: Highway Safety Mariagelent Structure and Organization organizational structure of the R.S.C. roles and functions of the R.S.C. statues establishing the Commissioi members of the R.S.C., their functions and how they were selected highway safety activities performed by the R.S.C. achievements and problems of the R.S.C. viability and future status of the R.S.C. The Commission's effectiveness in managing highway safety activity the R.S.C. 's comnmicatiol network and interrelationship with the private sector and state governments improvement of the R.S.C. The Commission's functional powers as related to other federal government ministries and agencies the level of gover'rllI-mt which provided highway safety services in various jurisdiction in the country the government agency which was responsible, e.g. police, city council the organizational structure of highway traffic safety activities at the state and local levels the heads of the highway safety organizations at the state and local levels S4 The questionnaire based on this target area is included in Appendix A. Target Area 2: Highway Safety Management Practices: In this area, the author was interested in gathering information on the management process : planning , budgeting , programming , execution and control and evaluation of highway safety management in Nigeria. Planm_.__ng‘ - the planning objectives at all levels of government — whether the plans were long-term or short-term - identification of the planners of highway safety activities - identification of persons setting the objectives -— identification of the elements of planning - the planning models used in highway safety planning - whether plans were documented and if so, in what form - the priority needs in planning and how they were determined - whether there were any feasibility studies or research work which proceeded planning - how the output of plans were utilized The questionnaire for this sub-section is listed in Appendix B. Programming - the inputs and outputs for highway safety activities in the form of departmental levels of effort - program content and elements - how programs were designed - identification of the program analysts or designers - total costs of programs - how priority areas were determined 55 the period of time programs were designed for; whether short or long-term information needed to make decisions in programming whether programs were based on research work or feasibility stuiies questionnaire for this sub-section is listed in Agnendix B. the budgeting process used means by which budget request and annual estimates were made information or sources of materials used in preparing budgets; whether there were guidelines to follow whetherthebnflgetwastiedtoplanningandprogramming activities individuals who made decisions on the bnrigets how the budget was distributed to highway traffic safety activities, i.e. allocation of funds how priorities were measured the total annual budget on traffic safety hflgetirs techniques used thetotalannualexpenditm'econparedwiththetotal annual highway expenditure The questionnaire for this sub-section is listed in Appendix B. EacutionandControl execution of departmental amnual budgets identification of individuals who control expenditures and authorize use of funds; who controls execution of programs 56 - whetherexpenditureswereauditedandbywhom - information needed to control the execution of highway safety activities - identification of individuals who controlled time schedules and performance of highway traffic safety activities - whether there were any guidelirnes for control and execution of traffic safety activities The questionnaire for this sub-section is listed in Appendix B. Evaluation - evaluation designs and methods utilized - whether there were any guidelines for evaluation - whether these guidelines were recorded and documented - the processes of evaluation - whether evaluation was carried out on a short-term or long-term basis - the results and findings of evaluation utilized for modifying activities - the frequency programs and plans were reviewed and evaluated - who the evaluators were - whether there was any re-evaluation of programs The questionnaire for this sub-section is listed in Appendix B. 57 Target Area 3: Highway Safety Intergovernmental and Private Organization fielaticnships: For this section , the author was interested in obtaining information on tie interrelationships of various levels of government (federal, state and local) with the private organizations in highway traffic safety field. Of special interest in this area were: the existing coordination efforts among levels of government and private organizations whether trere was any integration of efforts in highway safety needs the roles of government vis-a-vis private organization the existing ccnnmunication'channels among all the various bodies in He highway safety field wl'ether there were any guidelines for the relationship between tie government and private sectors what problems existed in tl'e relationship between the government and private sectors in carrying out safety activities whether there was any conflict in carrying out safety activities between government and private organizations. If so, known this conflict can be resolved. ' identification of the individuals responsible for the coordination of efforts between the government and private organization in the highway safety field 58 - new the government helped private organizations _ (and vice versa) carry out their safety activities - how the relationship between government and private organization in highway safety activities can be harnnonized in the future ‘I'l'e questionnaire for this section is listed in Appendix C. Nailed Qgestionnaire Because of tie neterogenous nature of the sampled population of highway traffic safety practitioners in Nigeria, the questionnaire for this group was slightly different fron the questionnaire for the group that was interviewed . A set of 50 potential statements was included in tie questionnaire which each rewondent was asked to indicate his/her qainion or views on highway traffic safety management practices in Nigeria. In addition, space for additional counents and renarks was provided in order to obtain additional information fronn tl'e respondents which might be pertinent to this study but which was not included in tl'e questionnaire. Tie corplete questionnaire is included in Appendix D . Tie appropriate and important information to this study and upon which the mailed questionnaire was based was as follows: Highway Traffic Safety Organizations in Nigeria - organizational structure in tle government arnd private sectors - the types of highway safety organization the respondent practiced 59 - the personnel of such organizations - the functions of tie organization in traffic safety - the relationship between the respondent's organization and the R.S.C. - whether the respondent's organization participated in tne R.S.C. traffic safety programs - tte respondent's feelings on tie achievement, problems and activities of tie R.S.C. - how Nigeria's highway safety management should be organized - lnowtl'eR.S.C. shouldbeorganizedandstructured - changesanxiinnprcvenentswhichslmldbehronghtto highway traffic safety management in Nigeria - wtether tne R.S.C. was an answer to tie traffic unsafety problems in Nigeria - the problems confronting highway safety management practices in Nigeria Tne questionnaire for this sub-section is included in Appendix D. Highw__ay Safety figment Practices in Nigeria: ‘I'ne information pertinenttothisstnfiyinthisareawastl'esameas inncludedin Target Area 2 under Interview Qnestionnaire . 'I‘re questionnaire for this sub-section is included in Appendix D. Highway Traffic Safety Intergovernmental Relationship with Private Organizations: 'n‘e information appropriate to this Stuiy was: - tnecoordinatingeffortswtnichexistedbetweentne private and public sectors in executing highway traffic safety work 60 how conflicts can be resolved tie contributing factors affecting coordination efforts between tle public annd private sectors Tie questionnaire on this sub-section is included in Appendix D. 'Ir'affic Unnsafety Problems in Nigeria: The information in this section was used to describe the nature of tie traffic problems in Nigeria. 'n‘e questionnairewas based on the following areas: the basic causes of tie traffic problems in Nigeria the factors which had the highest incidence of traffic accidents tie problems facing highway traffic safety in Nigeria improvenents that can be made in highway traffic safety in Nigeria solutions which can be devised to solve tl'e traffic unsafety problems in Nigeria 'I'ne questionnaire on this sub-section is included inAppendix D. PAmo'mrmsm Prior to the interviews and mailing of tie questionnaires, five members were selected to review the questionnaires. The panel onnsisted of tie following persons: 1. Dr. Shojobi, a former faculty menber responsible for highway engineering in tl'e Faculty of Engineering, University of Lagos, I-e is an expert in highway problems. Dr. Shojobi is presently a consultant in highway engineering arnd a practicing highway traffic engineer. 61 2. Dr. Mabogunnje is a professor at the University of Ibadan. He has had considerable experience in highway safety practices. 3. Dr. Bakare of tie Psychology Department, University of Ibadan. He is a trained psychologist and has written sore papers on highway problene in Nigeria. 4. Tony bunch, tie editor of Daily Times Limited, Nigeria. He is a knowledgeable person in tne field of communication annd information diffusion. 5. L. E. Scott-Emukpor, tte Director of Federal Infornmation Services, Lagos, Nigeria. He is an expert in conmunnication annd interview techniques . PIIDI‘ SIIDY A pilot study was conducted involving 10 practitioners in the highway safety field in Lagos, to obtain feedback and contents regardingtnewordingoftl'estatenents intnequestionnnaire. - 2 persons were interviewed - alpersons were given the mailed questionnaire In light of tie comments annd tie feedback from tiese people, the wordingofsoneitemswasaltered, anndinsoneinstancestneitems weredeletedornewonesadded.3 3It was discovered by tne author that Nigerians are used to saying "Don't m." The pilot study revealed this tendency. Itwas flerefore suggestedbyomemenbersoftnepaneltoinclude ”Don't Know" where the question calls for Yes or No. This was incorporated into tie final nail questionnaire. 62 'Be prelinminnary interviev with tie panel of experts and the pilot study conducted helped establish a reasonable clarity and acceptability in the statenents finally adopted. INTERVIEW TEEHNIQUES Prior to conducting the interviews , an interview appointment was arranged by telephone , letter , or through personal calls . airing the interviews, the author was responsible for asking the questions annd recording the answers. The whole questioning process was paced as efficiently as was tolerable and congenial. The author was neutral in a non-directive sense and restrained from responding to inflamatory or argumentative bait offered during the course of questioning. For the genuinely interested respondent , newever, the author was prepared to entertain his or her questions in order to establish and maintain precious rapport. The interview lasted for about one hour but exceptions occurred when the respondent was interrupted either by official work (e.g. answering telephones) or asked questions of the author. Before proceeding with the interview, the respondent was given a letter of introduction from Professor Robert Gustafscn, the author's academic adviser. (See Appendix E for a sample of the letter). The respondent was reminded once again of the purpose of the survey, the means by which respondents were selected and the guaranteed confidentiality annd anonymity of his responses. A special sensitivity was maintained to questions which were threatening to the responndent who indicated his discomfort by 63 addenly becoming restless and mentioning time pressures or other reasons why 1e wished to hurry tne interview. Snch sensitive questions were then dropped and the antler proceeded matter-of-factly with the rest of the interview mntil the respodent had settled down again. At tle end of the questioning skipped items were re-inntroduced by simply stating that the initial responses to questions so and so were not understood. In this way additional responses were obtained. If this proved unsuccessful a furtler interview was arranged and atteded . At tie and of questioning, the respondent was thanked for his time and cooperation. 'I’ne opportunity was also seized at this time to ask if tie respodent had any materials useful or pertinent tothestndy. Ifhehaditwasborrowed. Insomecasestle respondent was kind enough to give tie materials free. Trey were accepted with thanks.4 MAEDB PRIZEDURE The sampled opinion questionnaire was mailed to the selected individuals drawn from the practitioner ' 3 sample with cover letters from the autlnor. (Tie letter is contained in Appendix F). The letter described the nature of the traffic problems in Nigeria, 4Exannples included: 1. An article on Road Safety programing by Dr. Bakare of tie university of Ibadan. 2. Police management course proposal by Dr. Carnahan of Highway Traffic Safety Center, MSU, East Lansing. 3. Reportoftl'eOonmitteeonSafetyDevices inmtcr Vehicles and establishment of Driving Schools in Nigeria , from the Secretary of Road Safety Committee, Iagos. 64 explained tle purpose of the opinion questionnaire, tie time limitation for responsesandthemeans bywhicheachrespodent was selected. A stamped self-addressed envelope was included in each respodent's letter in order to facilitate convenient responses. A code designation was established for each of the respondents for identification purposes . This enabled the author to know the respodents by none, profession, type of organization, jurisdiction area , title and appointment. After a period of four weeks, a follow-up letter was sent to those respondents who had failed to respond to the initial mailing. This follow-up letter is contained in Appendix G. Tl'e author checked tie questionnaire returns, and controlled access to them by using the respodent's identification code number ratner than his/ner name. This safeguarded tie respondent's identity and anonymity. Letters of appreciation were written to respodents who returned their qnestionnnaires to acknowledge receipt of tleir responses (See Appendix H for the sample of the letter). WSFURTI-EANALYSISCF'I'HEDA‘IR In tne analysis of the data, responses from the interview survey were treated separately. Also, responses to each qnestion on the mailed qestionnaire were treated separately. Percentages were deternmined for each item on the questionnaires. when the percentage of tie respondents' cpinion on an item was above 51%, that was accepted as tie opinion on that item. 65 The data gained from tl'e respodents and tie statistical data collected with tleir subsequent annalysis and findings conprised tl'e informaticnuponwhichChapter IVisbased. SLIMRY Presentedinthischapterweretresurveyprocedures, selection of tie sample, development of tie interview and mail qnestionnaires, and methods for annalysis of tie data. 'Ine respodents' comments and responses were analyzed. Presented in Chapter IV are tne findings of this annalysis. CHAPTER IV ANALYSIS AND FINDINGS OF THE SURVEY In the preceding chapter , the techniques and methodology used to carry out this survey were presented. Contained in this dnapter is an analysis of the data and the findings of the survey. The primary emphasis in this survey was addressed to the management practices used in the highway safety field in Nigeria. Eighteen influential highway safety practitioners were interviewed and 116 others were surveyed through a mailed questionnaire. The states were visited and interviews were held with sore line department officials closely associated with highway safety operations and administrations. An 83% return (116 out of 140) was obtained from the practitioners throughout the country on the mailed question- naires and there was an 86% participation in the interviews. The particular managerent items explored in this survey were: 1. The organizational structure utilized for administering safety programs with emphasis on the structure of the RSC. 2 . The current role, involvenent and participation of federal, state and local governments and the private sector in highway safety. 3. A The management process employed in the current management practices . ‘66 67 4. The specific and principal problems in highway safety management practices . Also explored in this survey was a review of the magnitude and nature of highway unsafety problems as they existed in Nigeria. To facilitate thepresent ation of these data and findings, the chapter is divided into five sections. These sections are: l . The magnitude and nature of the highway unsafety problem. 2. Organizational characteristics of highway safety. 3. The role, participation and involvement of the federal, public and private sectors in highway safety. 4 . Current management practices in highway safety. 5. Problems in current highway safety in Nigeria. In the analysis of the data, each respondent's file was checked for completeness . The files for the interview survey and the mai led questionnaire were treated separately. Comments and responses frcm the respondents were reviewed. Responses from each question on the questionnaire -- interview and mail survey -- were treated separately. The percentage of the respondents' opinions on each item in the questionnaire was found. When the percentage of the respondents' answers on an item was above 50%, that was accepted as the opinion on that item. Tables were developed for items in the questionnaires. Percentages in the table were rounded to the nearest whole number. THE MAQ‘JITUDE AND NATURE OF THF HIGMY UNSAFETI'Y PROBLEM The complex nature of the highway unsafety problem in Nigeria was briefly described in Chapter I. The basic purpose of this section, 68 therefore, is to clarify how big a problem the nation is really facing in the present unsafety on its highways and what the developrent and trends have been. It does not intend, however, to review the accident causation factors nor propose countermeasures or reredies for the problems elaborated herein. In Table 1.2 (Chapter I) the crash data showed the number of people killed and injured in road traffic accidents during the last six years (1970-75) for which data is currently available. The general trend in this period and over the last two decades (1955-1975) has been an alarming increase in the number of fatalities. The most striking example was the dramatic increase experienced in 1975 compared with 1955 and 1965 respectively. In 1955, the number killed on the highways was 624 while in 1965, 1,918. By 1975, the number had increased to 5,552. During this period (1955-1975) , a total of 50,835 people had been killed. The number injured was about ten times the number of people killed during the period considered. While some of the injured were pennanently hospitalized, others were permanently maimed after recovery from the hospital. Net only had a considerable loss of manpower been experienced, but a substantial fraction of the nation's resources had been wasted. In order to gain further insight into Nigeria ' s highway unsafety problem during the past six years, highway crash experience for various categories (for which there were data) is analyzed below. (See Table 4.1) . It can be seen from the data in Table 4.1 that in 1975, 5,552 deaths were recorded, an increase of 91.7% from 1970 and 12/8% from 1974 data. On. the average, in 1975, there were 16 people killed everyday . 69 Table 4. 1: Traffic Fatalities and the Percentage of increase 1970-1975 I % of Change Faun Year Deaths Increase/Decrease Previous Year 1970 2,893 +546 +17.6% 1971 3,206 +313 +10.8% 1972 3,921 +715 +22.3% 1973 4,537 +616 +15.7% 1974 4,992 +385 + 8.5% 1975 5,552 +630 +12.6% wrumm. 25,101 +3,205 % increase 1970-1975 91.7% Table 4. 2: Nurber of persons injured in traffic accidents and the of their increase in the period 1970-75. YEar No. of Persons Injured Increase grgsigsgngzégram 1970 13,154 +4,350 +49.4% 1971 14,592 +1,438 +10.9% 1972 16,161 +1,569 +10.8% 1973 18,154 +1,993 +12.3% 197! 18,660 + 506 + 2.8% 1975 20,132 +1,472 + 7.9% % increase 1970-1975 53.0% 70 The survey also showed that the police figures above give an unrealistic picture of the tragic situation. For instance, a road death can occur up to 10 days after the accident, but on the 11th day, it is listed as hospitalization, or shock, or heart failure or given some other medical nomenclature, and consequently does not enter police accident fatality records for the year. The real road accidents scene therefore is actually worse than that portrayed by police records. During this same period (1970-75) the number of persons injured each year consistently increased until 1975 when a peak of 20,132 injuries was reached. (See Table 4.2) There were no precise counts of these non-fatal accidents. Consequently, a trend review such as was possible for death figures was impractical because of changes in definition, in completeness of reporting, and in investigation and reporting practices of the police, cities and states. However, each year's estimated totals as given by the police could be considered the best indication of the size of the problem at that time. then the. total number of accidentswas considered for this same period, 1975 was again a particularly bad year with 32,651 crashes reported compared with 28,893 crashes in 1974, and 16,660 crashes in 1970. (See Table 1.2 in Chapter I) In essence, within six years, traffic accidents had nearly doubled (95.98% increase precisely). A further breakdown of the traffic accidents according to states shouts that the former Western State (no Chdo, Oyo and Ogun States) recorded 5,302 traffic accidents with 1,044 fatalities during 1975 -- the highest in the country. Lagos State opted for a second place with 5,231 traffic accidents with 1,488 fatalities. The lowest accident 71 rate in the country was reported in Kwara State with 1,344 accidents. (See Table 4 .3 for the summary of the traffic accidents trend according to states) . Cost It was estimated that road accidents cost the nation N200 million ($300 million) in 1976. This was an increase of £440 million ($60 million), 14.2%, over 1975 total cost. Table 4.4 provides a summary of the road accidents cost in Nigeria between 1.970 and 1976. Deaths bx'ljges of Accident The survey showed that deaths in two-vehicle accidents was highest in the 6-year reporting period (1970-1975) . (See Table 4.5) Deaths in non-collision accidents showed the next sharpest rise followed by deaths in. fixed objects accidents and pedestrian deaths. Deaths in bicycle aCcidents decreased from 152 in 1972 to 138 in 1973 but increased from 1.41 in 1974 to 190 in 1975. Railroad accidents were down between .1970 and 1973 and now are on the increase. Data in Table 4.5 show a summary of deaths by types of accidents in Nigeria in the period .1970 to 1975. Vehicle Population The decade ending in 1976 witnessed unprecedented economic growth in Nigeria. One indication of this economic growth was the increase in automobile registrations and mmership from 1966 to 1976. (See Table 4.6) In 1966, there were 450,000 motor vehicles wl'ereas in 1976, the estimated number of motor vehicles was 6 million. This was a 12.33% increase over the 1966 figure. (See Table 4.6) 72 Table 4.3: Showing Summary of Road Accidents and Casualities January 1 - December 31, 1975 Total No. of No. of No. of No. of No. of State Cases Fatal Serious Minor Persons Persons Reported Cases Cases Cases Killed Injured {9395 5,231 323 712 4,096 377 1.488 $2293" 5,302 800 1,683 2,819 1,044 284 :33?" 3,154 413 947 1.794 568 1,618 gggabar 1,949 184 783 982 208 1,571 Egg?“ 3,430 453 870 2,107 538 2,062 Port- Harcourt 1.816 99 242 1,485 115 497 R.S. Sokoto 1.669 300 494 865 482 1,623 nus. Kaduna 3.099 389 896 1,814 555 2,374 N.C.S. §;gf‘" 1,344 192 385 767 291 730 3735 1,812 411 559 842 549 1,313 ng° 1,915 263 613 1,040 333 1.417 Maidu- guri 1,929 326 817 786 492 2,155 NES. Total 32,651 4,153 9,001 19,497 5,552 20,132 Source: Nigeria Police Accident Records, 1975, Lagos, Nigeria. 73 Table 4. 4: Swing Chat" of mad Accidents in Nigeria in the period 1970-76 Year Amount in N Million % of Increase/Decrease Over Previous Year 1970 67 +11.6% 1971 85 +26.8% 1972 90 + 5.8% 1973 100 +11.1% 1974 140 +40 ’% 1975 160 +14.2% 1976 200 + 2, 5% Source: Economic indicator, Federal Office of Statistics *The actual cost per year was not known. The figures above were estimates based on the various annual reports of the insurance companies and government departments. For instance, repairs of vehicles done by road side mechanics or private companies were not costed in the annual estimates. 74 .mpgmmvz .mommJ .Amnmfi .umsmppazgcav mucoumm ucwupuu< moppoa "mugzom N35 N8; :3 mag 83 83 :38 MHN mma "Hm «Hm nee mum mcmgpo omH Hefi mmH mm“ omH No“ 66.6»ueopoz mom Nom.~ mm~.~ Hem mom moo mpownac waxy; mmm awe mmm mmm ace mam cmpgpmmeoa me an Nm oe mm o“ muaoe_i~m mofi.m mmm.~ Neo.~ owe.“ Nem.fi NmH.H mpuegm>-ozh meofl «moi mum“ mums ism” Cami “cauiau< to seep £122 condom 45 5 £832 5 8.83on mo 89c. E 9368 "mé «Ema 75 Table 4.6: Gxuvth of mtor Vehicles in Nigeria*, 1955-1976 Year Quantity % of Increase over Previous Year 1955 38,000 Not Known 1965 172,000 +418.75% 1966 450,000 +161.62% 1974 2,800,000 +522.22% 1975 4,600,000 + 64.28% **1976 6,000,000 + 30.43% * Growth of motor vehicles in Nigeria includes both the registered and imported ones that have not been registered. ** 1976 figure was an estimate by Ministry of Trade, the exact figure was not known. Source: Federal Office of Statistics, Economic Indicator, Lagos, Nigeria, January, 1977. 76 Highways Growth The total number of kilometers (miles) of highway in Nigeria has been growing rapidly. The total mileage (kilometers) of highways has grown from 55,530 miles (83,290 km) in 1965 to 80,530 miles (120,804 km) in 1976.1 This growth tends to be offset somewhat, however, by the abandonment of rural, roads which have never been improved or which have fallen into disuse. Of the 80,530 miles (120,804 km) of highway in 1976, only 34,000 miles (41,000 km) were paved. Generally, while the overall growth rate of highways was about 2,500 miles (3,750 km) per year, the rate of growth of the paved and tarred roads was on the order of 1,000 miles (1,500 km).2 Dr ivers‘ ”....-.”— It was estimated that the nation's population reached 75 million in 1975, an increase of nearly 20 million over the 1963 census figure.3 By 1976, approximately 9% of this population were drivers as compared to only 2% in 1965,4 while in 1955, the driver population totalled 0.045%.5 m-~ lKampsax Nigeria Ltd.: Feasibility Studies of the National Transportation Network in Nigeria. A report undertaken for the Federal Govermient of Nigeria, 1977. 2op. cit . 3Nigeria population census 1963 was 56 million. The population census of 1973 was cancelled but the reliable population figure in 1975 was estimated at 75 million. 4Nigerian National Council. on Works: Report of the Committee on safety devices in motor vehicles (1976). In 1965, the drivers were estimated to be 1.]. million. In 1976, the estimate was 6.75 million. 5Federal Republic of Nigeria: Report of the Committee on Rudd Safety, November, 1968, Lagos, Nigeria. 77' Vehicle Travel The trend in v)highway travel, measured in vehicle kiloneters (miles) was on the increase. thor vehicle travel in 1976 approached 108 billion kilometers (72 billion miles), an increase of about 80 billion kiloneters (58 million miles) over the 1966 total.6 fies-1 The average travel speeds for motor vehicles indicated a continuing increase with like increases noted in the percent of vehicle exceeding the legal 56 kiloneters (35 mph) speed limit. In 1965, the average speed of free-flowing traffic on straight level, main rural highways in Nigeria was estimated to be 30 mph. This increased gradually to 50 mph after the war in 1970 and then remained relatively cnnstant through 1973. In 1974, when the road safety campaign was atablished as a result of the high rate of traffic accidents, the average speed of free-flowing traffic on main rural highways dropped to 40 mph.7 It must be enphasized that the above speeds were measured under a typical conditions and should not be construed as average speeds for all travel or even for all travel on main rural roads; such average speeds are unknown to the author . OMANIZATIGNIAL CHARACTERISTICS OF HIGHWXY SAFETY Attention in this section focuses on highway safety management structures and organization. Included in this section are the following : 6'I'nis estimated figure was based on 12,000 miles per vehicle in a year since actual figures were not available. 7Kampsax Nigeria Ltd.: Trunk Road and Naintenance Studies 1975 for the Federal Government of Nigeria, Lagos, 1975. 78 l . Organizational structure of the RSC 2 . Organizational structure of the state '3 Road Safety Advisory Carmittees 3. Organizational structure of line departments 4. Local level organizational structure. Prior to 1974, a myriad of private and public agencies had emerged to provide a multitude of managenent activities and safety programs in response to highway traffic unsafety problans. Diverse responsibili- ties were assigned to or assured by the various federal, state and local agencies and private sectors resulting in a severely fragmented set of responses and services in highway safety. Further fragmentation of highway safety management occurred through the autonomy of school districts, hospital agencies, police, and courts. This division of operating responsibilities discussed above, complicated the establih- nent of effective program-oriented federal, state and local and private sector highway safety program management units until 1968 - when an Advisory Committee on Road Safety was inaugurated. The survey showed that: l. A major characteristic of highway safety organizational structure was that it was not an integrated, cohesive operation. The survey respondents indicated that highway operating responsibilities were widely distributed among many federal and state goverrments, line departments and private sectors; and administered by several individuals, groups and institutions. (See Figure 4.1 and Table 4.7) Data in Table 4.7 Show that 71% of all questionnaire respondents were fran .35: 30:3 “common ecu cu Eggheads who nanosecond? w a l m c a c A a menace g . gm modded game and mmmzommflm gadgezuz mazmazommmfi man—032 5 Roman E2 5 EH95 coaoemmm 902g 3 genomes $6388qu 5 389R?! 835388 8dr: mo 8mg "a .e 03E. Figure 4 . 1: Various Organizations involved in Highway Traffic Safety Managermt in Nigeria Illustrated Highway Traffic Safety 9‘ *‘“7F‘"7 . COHRTS Lesa a. 6 swung” Roan / 5AFITY 1 A an so R1 communal! rural. Luvs _ unarmed“ 81 the line department. Ten percent were fron the private sector, 7% fron the armed forces and 3% fron unclassified agencies. (See also Table 4.18 and 4.19 respectively) 2 At the federal level, highway safety was administered by the RSC. At the state level highway safety organization was administered by the state's Road Safety (berating Committee, line departments and functional agencies like police, courts, education, motor vehicle licensing, etc. At the local level, highway safety was administered primarily by the private sectors through their established social and civic organizations. (See Table 4.18 and 4.19 respectively) (See also Figure 4.1) . (Eganizational Structure of the RSC. ()1 Thursday, the 11th of April, 1968, the then Commissioner for hbrks and Housing, Mr. L. O. Okunnu, inaugurated the Advisory Colmittee cn Road Safety. This counittee was charged with the responsibility of making a report on the ways and means by which road accidents could be reduced in Nigeria. This connittee sutmitted its reports in November, .1968. Among the recormendations made by the committee was the urgent need for the establishment of a Road Safety Connission. The government approved this reconnendation and in 1974, the Road Safety Oormission was promulgated. This represented a mi le-stone in the highway safety field in Nigeria. The RSC was the hub around which management practices revolved in highway safety in Nigeria. The RSC has its headquarters in Lagos, 82 Nigeria. It was formerly administered by the Ministry of Information when its primary function was "public information dissemination". It was later transferred to the Ministry of Works and Housing because it was erroneously thought that highway safety was purely an engineering matter. At present both the Chairman and the Secretary of RSC are officials of the Ministry of Works and Housing. The RSC was a non-executive commission and thus had no executive pcmer. Representatives were appointed to the Commission on the basis of their official capacities. Thus, the Federal Commissioner for Works automatically became the chairperson, while the principal planning engineer became the secretary . Appointment of state representatives to the commission followed the same line. Its primary flmction was to provide leadership and stimulate innovative approaches to the challenge which highway safety presented . At present, its only function is the organization of road safety week campaigns and seminars in highway safety. All the interview respondents confirmed this statement. (See Table 4.8) . The day-to-day affairs of the R3: was single-handedly managed by the secretary. This was mainly limited to distributing federal funds to the states to assist them in better management of the total highway effort and writing guidelines on the organization of road safety week campaigns. The specific functional matters like organizing safety week campaigns were handled by the state road safety committees in their respective states . The survey revealed that the RSC has no physical office of its own. In fact, the RSC in its present state can aptly be described as an absentee commission, an arm-chair organization and a tenantry agency. 83 Table 4. 8: Respolses of the Interviewees in Percentages* relative to the question Miat does the RSC do? MMBER OF W (F W8 111mm (1“ RSC ; W N = 18 , TOI‘AL 1000% Organizatiol of mad Safety Week 18 100% Distributiol of funds to State's highway safety agencies 16 89% Education of Road Users 4 22% *Percentagesareapproodmatedtothenearestwholenutber Table 4. 9: Respolses of the Interviewees in Percentages* relative to the question: "that have some of the RSC's accomplishment been?" MMBER (1“ PM or RESPCNIENTS mum W N = 18 TOTAL 1000% Organize Road Safety Week 14 78% Organize Road Accident Workwhop 4 22% 84 and.State Governments Highway Traffic Safety seas I :Miiitary Gov. J }[0peration Com.J Chairmanl J Secretaryl Streets I lflEnDEL_JLJh- IHKXFHIR BkuugnmEKELCmganizations in Federal federal ' - r RSC ‘ Chairman Program ' Information a *3 Weakly #1 Secretary Linked At Present State Rep. L Funding 1 Technical Information 3: Highways Flow Accidents I 85 This loose organizational arrangement is shown in Figure 4.2. In reviewing survey information regarding the RSC, Table 4.8 to 4.17 present the responses by survey respondents relative to the questions on the RSC. Data in Table 4.8 reveal that all the respondents believed that one of the functions of the RSC was organization of road safety week, 89% of the interviewees considered distribution of funds to states' highway safety agencies as one of its functions while 22% were of the opinion that education of road users was one of the functions of the RSC. Presenteri in Table 4.9 are the responses of the interviewees in regard to the question: "What have sane of the RSC 's accomplish- ments been?" Data in Table 4.9 Show that 78% of the interviewees ranked organization of road safety week as being an important accomplishment of the RSC while 22% of the respondents felt that organization of road accident workshop was one of the RSC ' s accomplishments. Table 4.10 shows that all the respondents were of the opinion that the RSC was funded by the Federal Government. This assumption vas correct. In Table 4.11 shows that all the respondents felt that the RSC carmunicated with the Federal and State governments relative to its activities. Data in Table 4 . 12 presented responses of the persons interviewed regarding the question: "What have been the greatest barriers for the RSC in implementing its charge in highway safety?" Table 4.12 indicates that all the respondents considered the following as the greatest .Hwnsnc oaogs_ummnmmc ecu en nonmeasoummm mum commencement IIJ oo o so o oo o oo o . .1 QIIIIIIIIJ fl ,fissfia Efia oSS ugh afifim Il.lllo wmmzoammm zfififlfioouz mezmnzommmm Rfiflflcfiggfiofifl8o8m2ufl3£=“838% . may cu m>aumamu «mommucwouwm so momsma>quCH on» we noncommmm “0H e manna 87 . 333 so been: 3 H858 838g: .uwnesc mHQQS phoneme may 09 ooemaoucammm one mommucwoumma IIIIIJ we 0 we 0 wo wo wOoH ma wood ma 0 G w G i. m G a S a .G o.|lIIIIIIL v 3022.9.ZOQ @BflfiHmm QEUQH mHEHm , Addflflflm w m.m 2Z0 mnm Mn“ .REHQKHHZH mm ”.2 m B_ZFNHQ 2:0 mnm mum if «L .....ammflfiflom a: B 9338 5388goooommmfim8o§r "fiflgmfioo m>aumaon «mommucwouwm so mmozwosquCH may no momcomnmm "Ha.e canoe 88 .ueceoc eHoc3_umeueec ecu cu oeumeaxoummm eue meoeuceouem« 'J , wwh ea wmm ma wood ma mood ma wood ma m C w C 2 w C $ C fl G COHUMCfiflfiOOO Hwficowhwm UCDM MO x064 MO xUMA MO xUflQ mflmzwmflflflH . ... w>HM500N0 m2 1 m N w 210 m m N.“ I ..IIIIIIIIIIIJ. .3Hb3flflsflnma n12 m B z.m n z;0 m m Him imbued SEE: 5 mg m3 gauge 5 8m ecu now mueauuec umeueeum ecu ceec e>mc_umc3= "cowumesv ecu ou e>aumaeu «memeuceouem cu meesefisueucH ecu mo eeeccmeem "Na .v manna 89 barriers: no executive power, lack of funds, inadequate personnel. Eighty-nine percent of the respondents felt that lack of coordination has been one of the greatest barriers while 78% indicated lack of support. In Table 4.13, data show that all the interviewees and question- naire respondents agreed that the Road Safety Camission should continue to exist. Table 4.14 shows that a 100% of the survey respondents felt that the RSC should be granted executive power. Data in Table 4.15 Show that all the respondents from the survey though that the RSC has not been effective in managing highway safety programs in Nigeria. In Table 4.16, data show that all the persons interviewed and surveyed by mail—questionnaire believed that no professional practi- tioners or specialist was employed by the RSC or utilized in program execution of highway safety. Data in Table 4.17 show that all the interviewees and question- naire respondents recarmended more funds and more power as measures to enhance the effectiveness of the RSC. While all the interviewees agreed that more publicity could enhance the effectiveness of the 18C, only 79% of the questionnaire respondents agreed with this measure. Eighty-nine percent of the interviewees and 72% of the questionnaire respondents recommended more personnel while 38% of the interview respondents and 29% of questionnaire respondents wnsidered more equipment as a measure to enhance the effectiveness cftheRSC. 90 .uecesc eaocs umeueec ecu ou oeumsaxoudmm eum memeuceouema I. ... ll so o so o woos o: so o oo mwoos 2 _ o o a o a _ a c o a o o a .92 p.98 oz 8s Bax p.98 8s g g 3efl>ueucH mm «"2 m B z mna zho & m HT“ Romeo 3 SqBBo adorn Summer—Bo sowed cane “ecuumeso ecu ou e>aueaeu «meoeuceouem ca mfixfifiéoo: muceocommem endoscooumeso one meezea>ueucH ecu mo eeecomeem "mu .v eacme 91 .uecesc eHoc3.ueeueec ecu cu ceumsasoummc eum eemeuceouema l ......l we 0 mo o mooH oHH we we wooH ma _ w c w c a a m m a a scan u.:oo oz we» seem u.coo mew mmmzoawwm “Huwnxmmm— eHHeCCOdueeso meadez can u z m H.2hm.oflzho_mwm Him Ramona 93598 cm confine 8. 329a 83858 Feed Rom ecu xcficu sex on: "coaumeso ecu cu eeaueaen aeeoeuceouem ca muceocomeem euamccoaumeso one eeeseo>ueucH ecu mo eeecomeem “3 .o eacmue 92 .gceaggflflsggageneeeomug we 0 wooH and we c we 0 wooa ma mo .....Ill o T new g “:8 mew m_a_z“m.u_a.u.umwm-m images 5 785.68...» huemmm E2 madman—fl: figaubemmefieceecsdaeedfidobeummoflzguxficugoes ”83936933 gauge.» «gfifigggggfigbg «ma .v eases 93 .ueaiéeagueeueececuouoeuflaunpgeueeeoeufiouema III-IL _ mo 0 wood 9: we «o o wood on no o f i . III]. v a a a a a ... s i: 4 ill. 39.8 uzbo we» 392 uLBQ 8% mum—8% g 1' II'II'l. guano 3on8 m: I z E 3 I z m a z u a z o m m m m .sbofimgflbfiagagfioofififiduflg Egguefieuoemmuouflbuuflbeumgeeewgbfieuflcufls «Sauce—avenue“. gflfi«§§5§§efld§§§ufiflfl3§ "3 Jeanna. .uecesc eacc3_ueeueec ecu ou oeumeaxosomm ewe memeuceouemr oom om won s andEoo one: was so . wow 2 ~93 89s we. No woos M: handed 89. wood o2 msooh 2 8.3 one: mood o: woos 2 muse 98: eeeccmeem .eocomeem eeeccmmem euceocomeem no a . mo Hosiz en a . mo 8952 mad—mg mg amuse—SHE g 38335 speed 38 me so 338%... ecu eececce cu oceeeceeu som.oasns.eemceco uecz: "cooueeso.ecu ou esaumaeu seemeuceouem cu muceoccmmem eHaMGQOHueeso use meesefi>ueucH ecu mo eeecomeem and .v eacme 95 The survey revealed that three other structures existed to pmvide management direction in highway safety in the country. These three structures are described briefly below. mganizvational Structurewofv State's Road Safety Quantity Committee. The first form was the Road Safety Cperating Cmmittee structure which was used in the states to assist the state's chairperson in his leadership and coordination functions. The Road Safety Operating Committee was established by the military governor in the state. the appointed the members largely drawn from the following categories: - line departments university groups ° professional societies The chairperson of the highway safety operating cannittee was the Commissioner for the Ministry of Works and Transportation in the State and the secretary was one of the state's representatives at the federal level. The functions of the Road Safety Cannittee included the following: 1. Provide advice and information to the military governor , the program management organization and the operating carmittee on highway safety. 2. Express public attitudes, opinions and ideas on highway safety. 3. Assist the chairperson in setting the state's highway safety priorities and goals. 4. Review progress of the state program and discuss problens . 96 5. Recommend changes and additions to current program operations. 6. Organize the road safety week campaigns. It was found in the course of the survey that most lmcwledgeable members of the committee did not always attend committee meetings. I-bwever, this form was the most rapidly growing form of organization for the states all over the country. (See Figure 4.2) Organizational Structure of Line Departments A second form was the line-department committee type. In this type, a small departmental committee was established usually by the head of the department and members were drawn strictly from the department. The Police Committee on Safety and Accident Surveillance, the Armed Forces Safety Committee in the S & T Corps of the Nigerian Army , the Education Department Committee on Highway Safety , were examples of this second form of committee in highway safety. The committee's function was primarily to collect and forward useful information on highway safety activities and organize departmental road safety activities. A peculiar function of this type of committee was that it could assign sub-cormittees to study methods for implementing new program elements or evaluating new methods for accomplishing a current program element. Unfortunately, however, channels of communica- tion between this form of committee and the state operating committee was never formalized . Local level Organizational Structure The third type was the voluntary local and city highway safety committee. Members were largely drawn from the same professional 97 groups, e.g. the motor club, the municipal drivers association, the motorcycle riders' club, the town traffic committee, traffic safety committee of the insurance companies. This form was generally chara— cterized by group interest, executive direction and irregular meetings. Unlike the other two committees mentioned above, members were strictly bound by committee decisions hence they wielded a considerable influence and power in local highway safety programs. On the whole, sufficient consistencies in organizational and operational patterns especially in road safety campaigns were observed to allow for the identification of a better future in highway safety management organizational structures. THE ROLE, PARTICIPATION AND INVOLVEMENT OF THE PUBLIC AND PRIVATE SECTORS IN HIGHWAY SAFETY The preceding discussion dealt with various organizational structures in the management of highway safety in Nigeria. In this section, a review of the role, participation and involvement of the federal , state and local governments and the private sector in highway safety is made. The nineteen states and their political subdivisions had a long-standing involvement in highway safety prior to the establisment of the RSC in 1974. These states, however, differed considerably in their approaches to highway safety management and the degree of their involvorent in substantive safety programs . In 1974 , the Federal Government established the Road Safety Oormission to provide an increased measure of financial support for highway safety at the federal level and to organize safety week campaigns and safety programs in the states so that there would be 98 a more consistent approach to highway safety management throughout the country. The promulgation of a highway safety edict in 1974 propelled the Federal Government into a definite leadership role for highway safety. The Federal Government through its agency, the RSC, became a repository agent for technical, financial and programatic information on highway safety. This edict (1974) which fostered the establishment of the RSC also caused the states to enact legislation creating Road Safety Committees to administer highway safety in their respective jurisdictions. Federal safety functions were divided among a number of line departments, e.g. police, courts, armed froces, education, etc. Each line department conducted its own planning and functional opera- tions. As the line departments were increasingly called upon to administer the elements of the federal highway safety programs, the role of the federal RSC was sometimes relegated to one of a grant administrator of the highway safety fund and that of fund-distributing agency . ates The state governments possessed extensive responsibility for highway safety. The states played the most prominent role in highway safety and occupied the primary position for controlling and guiding highway safety programs at the state level. (See Table 4.18) Data in Table 4.18 show that 67% of the interview respondents ranked the state as the major government jurisdiction providing services in highway safety. Ironically, the states played that role independent of the Federal Government safety agency and the surrounding local 99 .395: 3053 among: 93 3 movie mum $05503 mo 0 wm H who NH wwm m m c w c w G a G 28.50 g a gm ll m m m 20 m w mm Ill Hg muflz mBZmQZORmmm ..mfimmmm magma: 5 mwofirumm Egan.“ mum QBHuuHUmgn uggm 50.35.. "Sag may on $338 mmmmucmoumm 5 mmmswghmufi mo moms—cg "ma 4V man—NH. 100 communities. At the state level, apart from the involvement of the Road Safety Committee, the states provided services in the areas of police traffic services, traffic records, identificatio'i and surveillance of accident locations, traffic control, traffic courts, highway design and construction, motor vehicle licensing and inspection, codes and laws as well as for the overall police enforcement of all traffic laws within their respective jurisdictional boundaries. In some cases, e.g. traffic court services, the states were the sole providers of these services while in other instances the Federal Government provided complementary and even overlapping services, e.g. highway construction. The principal units of the state government that were responsible for highway safety activities and services according to interview respondents included the Ministry of Works and Transportation; Ministry of Education; State Police; Armed Forces; Ministry of Justice; and Ministry of Health. (See Table 4.19) However, in the urban areas during the road safety week. Some interviewees told the author during the course of the interview that the major participants were the police and the School Education Board. Unfortmetely, however, as some interviewees mentioned, the concept of dross-departmental program management was not yet fully institutionalized within the state government highway safety programs . .1221. Highway safety was a tenuous concept at the local level. Vhile lip service was paid to it, it did not command reasonable consideration, participation and involvement. Data in Table 4.18 show that only 5% of the respondents indicated that local government 101 Table 4. 19: Responses of Interview Respondents* relative to the question: "Which governmental agency is reapcnsible for highway traffic safety works in Nigeria?" W fi fi w Vf a V AGENCY NUMBER OF PERCENTAGE OF RESPONDENTS RESPONSES Police 18 100% Ministry of Works & Transp. 18 100% Armed Forces 18 100% Ministry of Educa- 18 100% tion Ministry of Justice 12 66.6% Ministry of Health 8 44.4%y‘ *N = 18 102 provided highway safety services at the local level. In the course of the interview discussion, the author learned that most local communities had no highway safety activities; that the few local units that had highway safety activities assured no active role in them; and that the sophistication of these activities and the attention devoted to them varied tremendously with the community, its size, its structure, and predilect ions . Private Sector The private sector had long been involved with highway safety. Its involvement predated most governmental efforts . With the establish- ment of the RSC and its state counterparts, the involveient and participation of private sector activity seemed to have diminished. In the interview survey , most respondents mentioned that there was still considerable private sector activity and that it was expanding rather than diminishing. What seemed to be occurring was a change in the character of private sector involvement and that was perceived as a diminuation of activity. There was, lewever, an emerging private sector activity at the grass-roots level and in the universities. These organizations became involved with a full range of activities -- from planning and research to dissemination of public informatim on highway safety. Universities particularly have been increasing their focus on highway safety probably in response to the increased demand created by state highway safety programs. For instance, the University of Ibadan was negotiating to set up a Road Accident Stuiies Unit while the University of Lagos was struggling to employ Highway Safety Specialists and Consultants to train middle-level highway safety practitioers . ' 103 Generally the survey showed that the private sector involvement in highway safety was carried out within the following three main categories :' 1. (See Table 4.20) Public interest: Considerable amounts of literature and mass media presentations were sponsored and distributed by private sector organizations. This public information covered just about every topic under highway safety, from road accidents to police patrol. Representational interests of a particular special interest group: A striking example was the Motor Club of Nigeria based in Lagos. They were the publishers of the "Motorist," a magazine devoted to the use of roads and vehicles. Donation and sponsorship by a non-highway safety group: The Rotary Club of Ibadan for instance donated funds for the road markings on Ring Road in Ibadan City . Another form of private sector participation in highway safety involved social and civic groups that engaged in highway safety activities as a secondary activity function. (he of the most important activities of this group was legislative advocacy. The legislative advocacy function appeared on the whole to have been quite effective. CURRENT MANAGEMENT PRACTICES IN HIGHWAY SAFETY The primary emphasis in this survey was addressed to the manage- ment practices in highway safety, therefore, this section forms the core of the survey . The particular management items explored in this 104 Table 4. 20: Responses of Interview Respondents* relative to the involved in.highway safety? : ”In what activities are the private sectors of projects . individuals . groups . institutions NUMBER OF PERCENTAGE OF ACTIVITY RESPONDENTS RESPONSES Public interest 18 100% . mass media . pub1ic information . articles Representational interest 16 89% . clubs, e.g., motor club . associations, e.g., driver Donation & Sponsorship l8 100% 105 section are: l . Management process (planning , programming , budgeting execution and evaluation) 2 . Intergovernmental relationships and coordination in current highway traffic management practices . Nanageient Process The management process as practiced for highway safety opera- tions by the public and private sectors in the survey sample was reviewed. This process was defined as planning, programming, budgeting, execution and evaluation. A review of the management practices for the component functions of highway safety yielded the following assessment of each phase of the managerent process. Planngg’ Most of the persons interviewed mentioned during the interview discussion that there was no process specifically geared to planning. Of greater pertinence was the fact that there was a total lack of long—range planning. Of all the respondents from the interview group, 78% indicated that plans were made short-term. Eighty percent of the respondents of the mailed questiomaire indicated the same. Twenty-tun percent of the interviewees and 20% of the respondents of the mailed questionnaire indicated "don't lmow." (See Table 4.21) In the course of the survey, it was found that long-term planning and programming were discouraged because of the frequent short tenures of the Chairpersons and secretaries of the Road Safety Committees both at the federal and state levels. In addiition, the historical pattern whereby federal and state officials dealt with 106 ...—35c 30:3 U853: 93 3 nouns—daemon one mommufioummt l is . mom mm mo 0 wow mm mNN . v we a was. 3 e ‘ IIIIJ w c a c a a w c s w s g U359 SHOE 08H EMT? uhOfim g Mfg snug g..— g uni—0am g g figggmfiuz “figauz m a. z m o z 0 A m m m Rea—09193 no gauge 39: 9ch one cuppa on» 5 oedema no.3 on... “8.33 E» on» 3 933m.» «momoufioudm 5 3% egg one gfifi mo 8mg Smé manna. 107 annual line-item budget allocations that did not reflect a long-term dimension seemed to be another factor that tended to discourage long- term planning in highway safety, even though survey data did not show this. Presented in Tables 4.21 to 4.29 are the responses by respondents relative to highway safety planning in Nigeria. The data in Table 4.21 show that of the 18 persons interviewed, 78% considered planning to be for short-term periods. Twenty-two percent said they did not know and none indicated the existence of long-term planning in highway safety. Of all the practitioners responding to the mailed questionnaire, 80% indicated planning was made short-term while the remaining 20% responded "don't know. " Data in Table 4.22 show that 78% of the interviewees indicated that the RSC considered not important in influencing road construction that would reflect the inclusion of highway traffic safety devices. Twenty-two percent indicated they did not know. Table 4.23 shows that 83% of the interviewees and 80% of the mailed questionnaire respondents considered the question: "Are planning information provided in highway safety?" negative. Seventeen percent of the interviewees and 20% of the respondents of mailed questionnaires admitted they did not know. No one indicated that planning information was provided . Table 4.24 shows that 83% of the interviewees agreed to the suggestion that highway safety activity plans were not formally documented and 11% responded they did not know. Six percent disagreed. Of all the respondents to the mailed questionnaire, 95% indicated that highway safety activity plans were not formally documented while the 108 .Honesc macs; powwow: ecu on ecumeascsono one mommuooonomt wmm e was we mo o mo. 0 a a a c w a w a 302M Bezoo ezeamoeannya azaamoezH azzamoozH . m who z_o.mnm Him .aHuzemezH ma ""2“ m H.2Fm a 2:0 ohm m.m gummOfi>mo madman oewmcuu mo :camsaosw can Sodom SE #5 "Sang anon £0833 5 08 mfi 3 ufifloefi 8:. . "scavenge on» cu m>aumaou «mommuemonmm cw musmoccmnmm 3mfi>uouoH mo noncommmm "mm q manna . .895: 3033 phoneme on.» 3 popes—nan mum «confidence... 109 ....Iiiis mm mom mm so o was m wmw ms so 0 a w a. w a w c a a w : goes o.eoo oz mos goes e.goo oz mm» mmmzommmm mmmzcamem loll-IL. gagggwumuz . gfiwnuz mezmozcmmmm i gmsummmm sesame; 5 8.ng Sega 65.853 85 «83925 93 8 9338 I humongouom 5 magnum mascoflmoso one ggfi mo homing "mm .v manna 110 .395: 393 #83 on» 3 no»: one commando? am o mom oss oo o “so N mmo ms so H o llllllio w a w c m c a c w s w : ...:auius . zoos uxooo oz. mos zoos u.ooo oz_ mos mmmynxmssa “anagrams“ gaggeunuz igfimuuz mazmozoommm gmoooomeoooo maamsoou mamas susssooo muonom eoznoan one: "coaumooo oem.oo Primacy encompfiouom 5 my; gag can «09055 «C 898an new . v 03mm. 111 remaining 5% responded "don't know." Data in Table 4.25 show that 100% of the interviewees believed there were no guidelines on planning but admitted receiving a letter— type form of guidelines for highway safety campaigns. This form did not include planning activities. The same 100% responses were received from the mailed questionnaire respondents. Presented in Table 4.26 are the data showing responses on the coordination activities among the various units in highway safety planning. One person (6%) out of the interviewees acknowledged that there was any fonm of coordination in planning while five interviewees (27%) responded "don't know," theeremaining 12 persons (67%) indicated that coordination did not exist. Eighty-six percent of the respondents cf the mailed questionnaire denied the existence of any coordination in pflanning while 14% replied they did not know. None of the mailed questionnaire respondents saw any coordination activity in planning. In Table 4.27 data show that of the 18 persons interviewed, 11% indicated that highway safety plans were used for preparing budgets while the remaining 89% replied they did not know. The data also showed that all the questionnaire respondents indicated that they did not know if safety plans were used for policy decision or budgeting or by the operating departments. Data in Table 4.28 show that all the interviewees and 83% of the respondents of mailed questionnaire conceded that objectives and priorities were not set for highway safety planning. The remaining 17% indicated they did not know. 112 .35: 39.3 ”Epsom: m5 3 Bum—Ag one comm-£80.39. e ..l '14 we 0 wood m: wo c we o m~63 we we o w G w G @ m C w G v Q 392 9.80 A no» 392 ”fan oz no» g g magi node: m: n 2 g 3 u z m a z m o z o A m u m ..mofigam How gemodsm mom mg was «838% m5 3 933m.” . twommufionom 5 mus—0mg onmGSaumoad one §§fi mo monsommmm "mm .v manna 113 339.55 30:3 ”.853: $5 3 39.58% mum 89350.69. II. In ..lljfi mg on wme 8.5 we mum m who NH mm H w a m a w w c w c m n 205” v.59 oz mm». g 9.28 oz 8% mag g man—"58.36 @232 m: n 2 g 3 u z m a z m a z 0 a m m m ..muouomm mugfium 9.3 cam 36% H83 98 .mmmum .Hmumumm ms» 08% ga@ 3 835.800 mam mama» mH= "8.3890 9.3 3 2,330..." *8mmucwouwm 5.. flaggmg éflumma Cam mmmzmghmufi mo 838m "em . v manna 114 .895: 30:3 #858: 05 on 89258.38 mum 88889. weew ewe we e we e we e wee ew we e www m we e 38x 9:8 .8 £888 86:8 A 392 .389 g A mono.” 8m 888 e v.89 658 , g g gsngnz gmfiuz All '.8J. mazmozommmm e 38m: 83 88 E2 mum 30:: "838—6 05 on ".5308 «8888 5 88988 88383 can 885 m0 898mg Kmé manna. .gmaggflflounmfiafigmgmmgg . lunllli e wew em wee we we e we e weew ew we e e a a w _ w. w a G a G g g 8 W0 32 .g 8 8% g g laulllJ gnguz Sew-z mazmazommum REEF—mam Emma mwzneaz you wmm mmauwuowum can mm>auuoeao mum: "coaumosu_mnu on m>aumamu «803% 5 3% gang can eggpfi no a; umN.v manna. 11‘ Programming As a result of the survey, the following observations on highway safety programming in Nigeria was made. They are presented below in Tables 4.29 to 4.35. Table 4.29 shows that 84% of the respondents from the mailed questionnaire group indicated no knowledge of who assigned responsibi- lities for highway safety programnung, while 11% of the interviewees and 9% of the mailed questionnaire respondents were able to name persons who assigned responsibilities for highway safety programming, 7% of mailed questionnaire respondents and 11% of the interviewees felt that there was_no one. Data in Table 4.30 show that 78% of those interviewed and 88% of the mailed questionnaire respondents mentioned that highway safety programs were not formally prepared or documented, while 11% of those interviewed and 3% of mailed questionnaire respondents felt that highway safety programs were formally prepared and docunented. Eleven percent of those interviewed and 9% of respondents of.mailed questionnaires replied they did not know; Table 4.31 shows that only 17% of both interviewees and mailed questionnaire respondents responded that they did not know'whether programs were developed for more than one year periods or not. Eighty-three percent responded "no" to the question and no one said "yes" to the question. The data, therefore, suggested that programs were developed for not more than a one-year period of time. Table 4.32 presents responses on the question: "Are there any guidelines for developing programs in highway safety?" Seventy-eight percent of the interviewees and 90% of mailed questionnaire respondents 117 .umnenc maos3_ummummc an» on omegafiaoummm mum mwmuucmpuum; .III.I:.|IIJfi . t mew mm we we ca «we «H mad mad N m w _ a a a A: a : 30cm u.:oo . mmamz 30cm u.coo .umfifla mmmzommmm mmmanxmumn .Iallllli ggmznz gnu-.2 miauammnueanvmnmnmgu ammCfleemnmoamumummmm mmsnmwn mo nonmaeowamm. may you mmfiuaaanamcommmu mcmammm.os2: ”coeummsv may on m>HumHmH. «mm .v manna «mommucmoumm ca «unaccommmm endoscoaummso_ocm mmmzwfi>nmucH no monsomumm .gmagggsgggagg lilJi i we aw wee meH we e we” e wee «a wee e w . w w _ w w w w .92395 9e 8e w§affid he mg mfiflfifl mfifififl ggmnnlz gala mezmnzommum Rouge—508 can gum 338m 9mg Roman .3559”: mud: "5.33 an.» 8 338 «among 5 35985 mace-0H3 one gags” mo 93% “omé 0.3mm. litl-’ 119 . .8855 30:3 powwow: on» on Engage mum $53:onwa I- Iii _ w: on wmm we we w: m wmm ma mo 0 w a a c a m c a c w s 30cm p.80 02 mm» 30.2 p.80 oz m0» 8mg g ewe—gunned Bag mSuz ravenous mauz m a z m a z o a m m m ..mmwfid mo @3qu .80» 96 can» once Hem 8535p gunmen oh? "Seugoav on.» on gUmHmu «mmmfifioumm 5 386% 8.39onde can §§ufi mo mung “Hmé magma 120 3885: 30:3 unnamed m5 3 Engage mum gag... ...l .I ll: _ wew 2 wee «2 we e w: e e. 3 w: e w a w c w a w a w a w a Ill! 38w p.89 oz 8» 35 9:8 oz 8» gum g gggmgdnz mazmazommmm germane E2 5 gang $59393 Mom 38% age mums» was “83% on.» B 9338 ammmmufioumm 5 3% 93.980.qu one ggufi mo «uncommon "mmé manna 121 answered "no. " Eleven percent of those interviewed and 10% of the nailed questionnaire respondents ansvered they did not know. Only 11% of those interviewed answered "yes" to the question. Data in Table 4.33 show that it seared alternative programs were not considered in highway safety planning . Eighty-three percent of those interviewed and 90% of those surveyed by mailed questionnaire confirmed this assertion. Seventeen percent of those interviewed and 20% of those surveyed by mailed questionnaire responded they did not know. No one said "yes" to the question. I Table 4.34 presents responses to the question: "Are current program information available in highway safety?" Eighty-three percent of the interviewees indicated that program information was not available while the retaining 17% indicated "don't know." All the respondents of the mailed questionnaire replied there was no availabi— lity of current program information. In Table 4.35 it is revealed that 89% of those surveyed by nailed questionnaire and 78% of the interviewees indicated that highway safety programs that crossed departmental lines were not prepared and documented. Seventeen percent of those interviewed and 11% of respondents of mailed questionnaires replied "don't lemon." mly 5% of the interviewees conceded that highway safety programs that crossed departmental lines were prepared and documented . Budge ES. Budgeting was one of the important management processes in highway safety that was surveyed. Table 4.36 is a smmary of the federal. road program for 1975-80 and Table 4.37 to 4.42 present responses by the interviewees and 122 8895: 30:3 988mg 05 3 no»: one. mommuficnmmw I- llli e on NH woe «3 mo w: m wmm ma no 0 1 IIIIIJ w a w c a m a a a m : IIIIIJ. 305a p.89 oz 8» 8cm U2:8 oz 3» _ g g gaggdmzminz ggnz m H z m a z o a m m m gauges—Eugen mummdm age: 5 8.83950 mfihmoum 9395»? 9.2.. "833% m5 0» 933mm ammmmucmouwm 5 mus—mpg engaged use ggpfi wo mmmcammm “mmé magma 123 .gmagggsggggg _ we e weew ewe we e wee e wee me we e _ ll - ,llL. w w _ w w w w c l lull... 85— 9:8 02 8e 382 face oz 8» g g 2.3388 3:! e: a 2 g 2 a z mazeazoaeum Rename» E2 5 0.3an 83283 gm 9% mud: “Saved—6 an... on 9% «gag 5 mason—BE gag one g; «o mam—8&3 3mé 0.33. 124 .Hwneac maoc3_ummum0c may on ooumeaxcgmmm mum mmmmucwouwme "J w mfifi ma wmm mod wo oA wnfi m wwn «H mm H w c m c w c w a w a m a E #180 02 mm» 305“ fag 8M mmmzomwmm mmmzonmum la .lllIL. mnfimccowummso umaamz.m~H u z 3ma>umucH mg n z m 9.2 m a 2:0 a m Him emumucmesooc cam umummmum mused Hmucmsuummmc mmouo was» msmnmoum mummmm mmznmfla made "coaummsv may on m>aumamu «mmmmucwoumm ca mucmncommmm mHflmacoaummso van mmmzme>umucH mo mwmcommmm "mm.v magma 125 Table 4. 36: SUMMARY OF FEDERAL ROAD PROGRAMME 1975-80 (N million) Total Federal road programme ............... (4.355.960) (a) Primary Trunk 'A' network including ... éi) Asphalt overlay .......... 133,580 ii) Continuing projects ........ 340.500 2,5l8.940 (iii) New projects ........... 2,044.860 (b) Existing Grunk 'B' roads taken over by ........ l,440.000 the Federal Government (c) Urban by-passes .................... 87.400 and intra-city fly-overs ............... 58.870 (d) Miscellaneous projects ................ 37.l50 (e) Materials and Research ................ 5.000 (f) Training ....................... 10.000 (9) Road maintenance ................... l38.600 (h) Studies, Design and Right- .............. 60.000 of-Way Acquisition * (i) Highway safety .................... ?????? Source: Third Year Development Plan. Federal Republic of Nigeria, Lagos - Nigeria, 1975. 126 persons surveyed by Hailed questionnaire concerning highway safety budgeting in Nigeria. Data in Table 4.36 show that the highway safety budget was not considered as part of the total highway transportation budget . Data in Table 4.37 show that all the respOndents in the survey indicated that the highway safety budget was not tied to planning or programming activities. Table 4.38 shows that all persons interviewed and 93% of the mailed questionnaire respondents responded that highway safety was not entered as a separate budget category. The remaining 7% of the mailed qaestionnaire respondents indicated they did not know. In Table 4.39, the data show all the respondents agreed that the RSC members and state representatives did not participate in the budget process. In Table 4.40, the data show that all the interview respondents agreed that the budget was usually prepared to cover a one year period . Data in Table 4.4]. indicate that all the respondents in the survey responded that there was no guide line for preparing the budget in highway safety . Table 4.42 show that all the persons interviewed indicated that revenue sources were not provided to support pr ivate sector highway safety activities . Execution and Control Program execution and control is an important function of the management process in highway safety. It is especially demanding in highway safety since effective rnanagenent of highway safety programs depend in great measure on the capability of concerned highway safety 127 .uonesc oaoo3_ummuoo: on» on moumsaxoemmo one mommucwonom« lille we 0 weea wad we we e meea ma we e e a e c _ e e c e a e s 30cm face oz wow :92 p.98 oz mow wmmzomwmm mmmzonmum gang 3H3 m: u z toga—H me u z mezmozommwm =mmmeuw>auom mseeemumoum Ho mceccmae 8. 83 Fauna mafia? 5 no? 2» m5. "Showman m5 8 9338 «momoucwowom ca mucmocommmm ouemcCOeummso new mom3wH>uouCH mo noncommmm "hm .e mange 128 . 35c 30:3 somehow: m5 3 nova—5890mm ohm “3935089 l l4 _ we m wmm med we we 0 wood 3 we e w a w c w w c w a w c . lllllj. zoom U:58 oz mow Sax p.98 oz mom e 8ng as gagng E3 6: u z Ewan?" mazmozoammm oumnamm m mm oonoucw madman ~33”me mH .. ..esuomoumo 583 .3033 on» 3 gauge“ «mommucwowmm one 35% ogeuaa one «SOEGHGH yo no; "em. v wanna 129 3.895: 30:3 noon—mo: and B confl—Hg ohm. commando? we e weew e: we e we e weew we we e w e w a w . a w a w a w a 3923.8 8302 mused 5.2989 8302 Emfi g g ggmznz gaunz mfizmozcmmflm mumpmwaflmafieummmfigsmzwafifi. smog “59an on» 5 goofing “$3353.“? “833:”. on» 3 gen—3w» «803g 5 magnum gang mxfi mggfi no no; "mmé wanna .HoQfiE 30:3 umwnmo: of B Moog who 88950.“.ko 130 e we 0 wooa ma we 0 G w G w G n G gurrg Hafigg Hafig Hawghfimxs ll mflmzommmm I1 fig waflz mBZmQZOAmflm gaggfieoggfimfigflgflufl? "83% Q5 3 9338 «Rumour—008m 5 §§5 no 8983 new .e mange 3895: 30:3 Humane: on» 3 no»; 08... $938.39. I] 131 e we e weew ewe we e we e weew ew we e w a w a. w l a w a w a w : lllll. 38x95. oz 8» Effie oz 8» g g flaggezuz gewuz mazmazommwm 8583 ofi Papas wow 9:833 at mg or. "83.8% Eu 8 o 9338 «amuse—dog 5 my; pagoda one ggfi no 8989QO «Sé manna Table 4.42: Responses of Interviewees in Peroentages* relative to the question: "What are the revenue sources, in 132 percentages, for supporting private sector highway safety activities?" ’ R E S P 0 N D E N T S N = 18 INTERVIEW sources, in percen- tages, for support- ing private sector highway safety activities? QUESTION R E S P 0 N S E 5 Resources Resources Provided Not Provided DON'T KNOW n % n % n % What are the revenue 0 0% 18 100% 0 0% * Percentages are approximated to the nearest whole number 133 officials to execute and control programs on a continous basis. Tables 4.43 to 4.47 present data on responses of the inter- viewees and mailed questionnaire respondents on the execution and control process in highway safety management in Nigeria. Data in Table 4.43 show that all the persons interviewed in the survey and 95% of mailed questionnaire respondents indicated that current information on execution and control was not available. Five percent of the surveyed mailed questionnaire respondents replied they did not know. Table 4.44 shows that all the respondents indicated that no execution and control information was recorded. In Table 4.45, the data show that all the respondents agreed that there were no guidelines for program execution and control . Data in Table 4.46 show that 83% of the interviewees and 88% of mailed questionnaire respondents indicated that decisions made during program execution were not based on research work . Seventeen percent of the interviewees and 12% of mailed questionnaire respondents replied they did not know. In Table 4.47, data show that 78% of the interview reSpondents and 74% of the mailed questionnaire responded that they don't know while 19% of the interviewees and 11% of the mailed questionnaire indicated that nobody was responsible for program execution and control in highway safety. However, 11% of the interviewees and 7% of those surveyed through mailed questionnaire named "somebody" to be responsible . 134 .Hogesc maos3_ummumcc on» on ocumeaxcsdmm one mmmnucooummw ..- iii _ we e wee ewz we e we e wees es we e u [It‘li w s w c w a m c w a w a 3.8x 3:8 oz 8» zooz feoe oz mow $92sz 896% i muflmccowummso coded: mam u z rwqepwoon ww u z m B z_m a ZHO a m mum Houucoo can coeusumxm enumoum so :oeumsuomca mH= emoanmaem>m coaumoso cry on m>wumawu «mommucmouom ca mucuosommom mnemoooaummso can momsme>umusH ecu mo mmmcomwmm "mv.v canoe 135 .HwnEDc oaocz powwow: on» on UGUMEHXOEQQM mum mommusooummw we 0 wooa was we c we 0 wooH ma we 0 i i. w c a s w is w c w a w : zocx u.con 02 mm» 302x u.coo 02 mm» .mywnwmmmm mmmzommmm 1 111111 mnflmccoaumuso uwdfimz.m- u z gawdflz m E z m.n,zho_a m HEM emomcuooou ooHunEuomoa coHunooxw enumoam mH= «cowumoso may on mpaumamu wwmmmucwouom ca wuowocommmm whenccoeummso one mmmzme>uouoH mo noncommmm new .v unnuH 136 . schema: 30:3 awesome 05 cu Engage who mommucwoummw _ we e weeH e: we _ we e weeH 3 we e Ill‘llfi w c w c _ w c w c w a w c a. a p.59 oz mm». 29.x p.98 oz no» mumzoemmm mug endow—.833 03.32 ...: u z “fig—h ma .1. z wezmnzoammm ..maofiwcoo can 535098 Eng Mom mofififiedm mom 8.93 0.2.. "83% 93 cu 933m.» mmomfiaoumm 5 mucmocommmm mgevmmwd can §§5 mo mmmcommmm "me .v 3nt 137 .umnesc maos3 awesome man on oonmeaxoudmm mum mmmnucoouwmw i _ . wmz 3 wee new we e w: m wme 2 we e w c w c w c w c w a w a Sex p.89 oz mow 8oz ozcoo oz 1 8» 8mg g muflmccafiumuso coadmz man u z m 8.2 m Q.Z_O & m Him coaunooxo someone mcfluso coma chemHomo mum: emxao3 commands :0 month "cowummso can 0» m>aumamu «mmomucmonwm cw musmccommmm whamcoowummso can momzwfi>uoucH mo moneommmm "we .v QHQMB 138 . Hone—E 30:3 powwow: on» 3 no»: one «demanded? .1111 ee ee wee we we e wee we was was e i w c w c w s w c w w s 85H ”room eeonoz $898 See ”room eooomfie @582 we; gaicoagwuenz geauz '1. mazmozommmm ..eeoommm e562 5 wobeB one 835098 Someone How 353mm“ we 03?. 2.3.595 on» 3 mango.» «mommucooumm 5 mug ageumowd one. 8033ch m0 monsomam " S .v 383. 139 Ewaluation Tables 4.48 to 4.53 present the responses of interviewees and mailed questionnaire respondents on the evaluation process in highway safety management in Nigeria. Data in Table 4.48 show that all of the respondents indicated that programs were not evaluated. In Table 4.49, the data show that all the persons interviewed and 90% of those surveyed by mailed questionnaire responded that evaluation of programs was not documented nor distributed. Ten percent of the mailed questionnaire respondents indicated they did not know. Table 4.50 shows that 90% of those surveyed by mailed question- naire and 100% of the interviewees indicated that there was no specific evaluation method or technique:employed in evaluation of highway safety programs. Table 4.51 shows that all the interviewees and 90% of those surveyed by mailed questionnaire responded that there was no guideline for program evaluation of highway safety activities. Ten percent of the mailed questionnaire respondents replied they did not know. Data in Table 4.52 show that no one really seemed to be responsible for evaluating highway safety projects and activities. in Table 4.53, the data show that all the interview respondents and 95% of mailed questionnaire respondents indicated that highway safety projects were not reviewed at all. Five percent of the mailed questionnaire respondents replied they don't know. .Eziserieeesen.tsil..eeests in Higher Safetx In this section are presented the findings of the survey on 140 . SB: 3033 #858: m5 3 Engage one. 8038039 i i gag 3.32 m: u z sufibumu:H ma u z . wa 0 wood man wo we 0 wooH ma mo o i w c w a _ w w c w s w : 30oz u.:CD , oz mmw 30cm U.:DD 02 mm? mmmzommmm mumzonmmm m 9.2“m Q zio.m m mfm aged: .30» 5. ©933me gumoum mud: genes 3&8 "538% 93 3 gauges «mommufiouwm 5 meaning $395333 one 8953.395 mo wmmsomwmm wmv.v manna 141 . .895: 3033 awesome one. 0» Egg who 80350.89 wed NH wom «OH wo wees ew we er . e >55” #150 OZ 8% 255m #2500 02 mung gggmmguz gwuflz i- ...‘ij mazmozommmm ..meoguumeo one gauge 98ng mo mgflgaebm mud "838.6 wfi 8. 933mm mwmcucoowmm 5 flame—song éeuuoso Em momeEHEufi mo mg umv .v manna. .gmagggggmfiflgggg 142 .IIIIIIJT woa NH wom we." we c we 9 woo.— m... we a w w _ w w w w G g “2.8 02 mm» 5 mfg 9‘ 8% g g gig—.03 Edd: man I z . g QH I 2 w .H 2 fl 0 2 O h m N M ..eSeroB ..6 @059: Egg cameoomm mam mg nH: “goose. 05 B gene? «mommufioummfifig engages—agave; “em .v canoe 143 .3956 30:3 panama on» on on»: one 803%? 1:111; _ wee we wee wee we e we e weew ew we e w a w a w a w a w s w a :92 p.89 oz new :08” p.89 oz me» E g . gamed code: we: I 2 g 3 a z m n. z m a z o m m m x 383338 3&8 EB mo egg emhmoum sou 053% team when. our. "8.3% on» 3 9338 «among 5 mean-Bang assuage can ggwoufi mo meg 3m .v wanna 3.805: 30:3 93.89» 05 3 Egg mum 30350909, 144 ...-7.. lit/40¢ e weed ewe we . e we e weed we we e w i w w w w : Ill-IIL. €082 ESQ-em :92 ......8 @082 @398 g g gggezuz ._ gownz mszmozommum gwmumumm wmznews aw 833g emumoam you and; B" 9!: "8.3346 may 3 magma . «803% 5 359% 05.55833 95 gflfimufi no 8985 ”mm w manna .595: 0.833 “Emma: 93 3 Gong? mum «égcmoummw 145 wm e wme e: we e we e we e Heed 3 we e we e w a w e w c w i w i w a. w c w a 1‘ .‘ll .1 3923.8 24282 3.58» fig face we um 82 >28» A ago 36.3. g figgewwnz Sew-"z wBZHn—zommmm ..mcoflmanmmuo a 5 60.6% $5.595 mum 5&0 some «8335 05 B 9338 «893583 5 magmas mfimfiuofipufild new ggfi «0 89.6993 "mmé manna 146 inter-governmental aspects in highway safety. These data are presented in Table 4.54 through 4.66. Data in Table 4.54 $11.04! that all the interview respondents agreed that a situation existed in which they Federal Government may contact with the state for services . ‘I'ne author learned fran the interview discussion that states for instance could contact the Federal. Government for reinforcement of police for highway patrol. In Table 4.55, data show that all the interviewees surveyed considered that the relationships that existed between the federal and state governments for providing services were mainly financial, political and intergovernmental. Fifty-six percent considered technical information flow and functional aspects as the part of the relationship existing between federal and state governments. Forty-four percent of the interviewees considered that federal and state relationship existed on information exchange, and 11% of the interviewees considered that relationship existed in program exchange. Table 4.56 shows that all the respondents indicated that the state did not maintain relationship with the local governments in the area of highway safety. Data in Table 4.57 show that all the respondents in the survey agreed that the state did not have a formal arrangement with other local jurisdictions in highway safety. In Table 4.58, data show that all the respondents in the survey considered that local government rule did not canpl icate federal highway safety programs . Data in Table 4.59 Show that nobody seemed to be responsible for applying for safety funds for local highway safety projects. .8: 30:3 88¢ 05 on 88% one 8038089 147 ~88 How 33m may 53 8380 has ”Em—88m. we 0 mo o wood 3 Hmumowm on.» 8% 3 nova "Bang? 0 88 a G v a a G g v.8 oz 8» mmmZOfimHM EH55 Hagan,— mazwozormmmm 3.838 How 33m $5 5.3 figgufigfifieflmflfigfigfifimfiag ~88. .838 on.» 3 94.83.» 888m 5 89.385 m5. m0 mama—0mg .36 canon. 148 Table 4.55: Responses of the Interviewees in Percentages* relative to the question: "What relationships exist between Federal and State for providing services?" TYPE OF RELATIONSHIP zggggfiog575** PEQEEESQSESOF Financial 18 100% Political 18 l00% Intergovernmental l8 l00% Technical information flow l0 56% Functional l0 56% information exchange 8 44% Program exchange 2 ll% * Percentages are approximated to the nearest whole number **N=18 ...—«95¢ 30:3 “88¢ 93 on @388 can 8E8? “we... Ea .. .... on» 5 38.800 303 «5 5H3 0 e003 2 e o o a 55:3: Beam on» T08 82838» on: : w . c v G 149 33% #289 0:02 Rum—Um mflmzommnmx Hg mduz mBZmn—zoammm 8888288835 §8H935§§§380588§u§ "88839330.." «858085 88989:” 8.8898me «mm 6 magma. 150 .goagggsgggg . ill: _ we e wees e: we we e wees 2 we e .w a w e . w w w w e l ,. J I: ..IIIIJ. .65” 9.80 oz 8» g 9.8 oz 8» .. l f mg 3588 383.333. ms ... z in 3 ... z m a z m a z o a m u m 288 8:52 5 «8883” 182 850 5w: 3888m§38§88= «83893383.».an «888.3 5 386888 gunned 98 898.385” no 89898 "hmé wanna 151 .35: 30:3 ”6980c 05 0.... no»: mum 89359.89 It'll? _ mo o wood m: we c we o wood 3 we 0 w w a w ..u. w G w c a c a Shayna oz 8% guzfia 02 8N g g gagwnnuz Sauna m BZNO 20mm mm .3955qu Emma EH Hag gigaufigamooag naggfigfla «agéfiflgggggfi no; “mm .v manna 152 Illll4 m wee ea we e we e we e . w w _ w w w ATII I 3§_.§_ €32 dfid «$6 EfiBm III ..lllllj mmmzommum IIIIJa zflfiflfiewnz mazmnzommmm .. 38mg gnaw EH: Have.“ you g 3303 use 3.3m How 933% an $335989 . m 393.. uggsgflfiwggfiggfigwog “mm «manna. 153 Mile 89% of the interviewees indicated that there was nobody responsible, the remaining 11% replied they don't know Currently, according to the Secretary of the RSC, the only form of financial aid relationship between the Federal and State governments was the distribution of the annual £15,000 ($7,500) road safety campaign funds to the state by the Federal Govermnent . In Table 4.60, data indicate that all the respondents in the survey believed that the state did not maintain relationships with the private sector in highway safety activities and works. Responses of the interviewees in Table 4.61 show that the cnmnnication channels between the federal and state governments were through letters and ccmnittees. However, 89% of the interviewees responded that no communication channel existed between federal and local on one hand and state and local on the other. The remaining 11% indicated they don't know. In Table 4.62, data show that all the persons interviewed agreed that no central highway safety coordinator existed in council jurisdiction. Table 4.63 presents data on the question: "Do private sectors have a central highway safety coordinator?" Seventy-eight percent of the respondents replied "no" while the remaining 22% indicated they did not know. Data in Table 4.64 indicate that of all the problems that existed in state and local intergovernmental relationship, all the respondents corlsidered lack of coordination, lack of funds , and lack of information flow to be significant. While 89% of the respondents considered lack of support, 78% identified lack of consultation as one of the problems. w 2.8 OZ 8 g g 2 8% g g gage gods mmmmmmmmmmm gmgflfifim gm EH 5. Hauuom angels” 8'3ng figfifluflflmgg uggggflfi «gfiougfiflggggggfimog "om-d manna. 155 Table 4. 61: Responses of Interviewees in Percentages* relative to the question: "What communication channel is used in highway safety between Federal, State and.local levels in highway safety? mmv mmrmrwmreeetmses Federal/State . Letters 18 100% . Committees 16 89% Federal/Local None 16 89% Don't Know 2 11% State/Local None 16 89% Don't Know 2 11% * Percentages are approximated to the nearest whole number ** N = 18 156 . Hwaebc 30:3 unseen: on» 8. @3839? who mom—350.39 muouofioHooo humane amznmen amuugmo we e weed 3 we a 9,2 mfifioeomflsn 3958 go 8 w. a w a m 38m 9:8 8» w m m z;o.m m Hem zfiHamHEZH_w~“u,~ m B_zwmnahz:0 a m Him .20HBmWDO 3.68% Emma Eefl amneao m 92 gouge 3058 .850 8.. “gamma 9.3 on 9338 «Egg 5 ggfi Bu mo 8% "mm .v manna .35: 30:3 .5980: 93 8 confines who 89350.89. 335:808 E2 3.350 m gm: nuouoom engage on 157 mmm v was. 3 mo 0 a a w w . c a 308" 9.89 oz 8% 75g mwmzommmm figmnuz mfizmazormmmm Raga Bowen EB figmgnuoauom gene 8.. ugggggflflgwgfigfigmog ”no 6033. 158 Table 4.64: Responses of the Interviewees in.Percentages* relative "What probdems exist in State and to the question: local intergovemnmental relationShip?" m. Lack of coordination 18 100% Lack of funds 18 100% Lack of information f1ow 18 100% Lack of support 16 89% Lack of consu1tation 14 78% Po1itica1 Jealousy 8 44% Lack of information exchange 4 22% I11iteracy 2 11% Immaturity of officials 2 11% A * Percentages are approximated to the nearest whole number ** N = 18 159 Forty-four percent regarded political jealousy as a problem, 22% named lack of information exchange as a probl‘em and 11% attributed the problem in state and local intergovernmental relationship to illiteracy and inmaturity of the officials. In Table 4.65, the data show that 68% of those interviewed agreed that the problems in private and intergovernrrental were mainly due to a lack of coordination or cooperation. Twenty-two percent of the interviewees attributed the problems to political considerations while the retaining 10% considered "different objectives" as the problem. Table 4 .66 presents recmmendations of the interviewees and mail questionnaire respondents on how to promote the interrelationship between the private and public sectors in highway traffic safety field in Nigeria . All the respondents in the survey reconnended "praroticn of coordination and regular consultation" as measures. All the persons interviewed reconnended good cannmications, whereas 89% of the interviewees recannended good public relations; 78% , meetings of representatives; 44%, mutual respect; and 11% , opted for fighting it out and education as treasures . Seventy-eight percent of the persons surveyed through questionnaire suggested good cannunications and good public relations while 72% recomended meetings of both representatives and 34% opted for mutual respect . Nineteen percent and 17% recommended fighting it out and education respectively . PROBLEMS IN CURRENT HIGH/RY SAFETY MNAGEMENI‘ PRACTICES The preceding discussion dealt with current nenaganent practices including the management process involved in highway safety in Nigeria. 160 .Hméflc 30:3 amended on» 3 Eggs wHo 85:88am... we e we wee e wen w wee NH ll i _ 11 . . 8 onseng . 38x n . 8o €888 38Bfion e8 sandman 88% .1. IIILe mmmzommmm Scan-z mBZHn—zommflm ...w 30 Sansone .5888 803:8 593880 games .838308 ..8 gang mo coma 3 m8 Danna EB figfiuggggflgeafi'agofifi: .SEQfiBgflnafl wgfiggufi 889.88: ..mee manna 161 geese: ewes: peegem: esp op eeueewxogeee ege memeeceugme wuw e_P u z «w e_ u z w xnp ow xpp N cowueuauu wee em wp_ e wee e. eewpeeee wee ee wee e wueewee Feewez we“ ee wen e_ weeweeeeeweeeee we weeeweez we. ee wee e_ weeweepee ee_eee eeee emu om moo_ mp e:o_ueuweessou uoom wee_ e__ weep e_ eeweeuFeweee .e_eeee wee_ ep_ wee_ e. . . . eewueeweeeee eeeseee weezeeeee wwepzeezeeeee wewzeezeeeee eeeeehze zeeh. .._._.3 pap—3.. =weweee_z e. e_epe eeeeee eweeeep eezeewe cw egepume UVPeee use eue>wge we» emozuee gynecopueFmsgepe_ mg» muosoge ":e_uee=a esp op e>wuepmg wwweemepceugee epeeeceeeem egweccewueeeo wee eoe3e_>gma=H men we emecoeeem "we .v manna 162 Inherent in the management practices were same specific problems. In this section, these problems are briefly discussed. Prominent among the problems indicated by the mailed question- naire respondents in the survey were: inadequate funds , lack of coordination, lack of manpower, lack of effective leadership, lack of facts and data and inefficiency of highway safety officials. Table 4.67 presents the responses by the mailed questionnaire respondents in regard to the question: "What do you think are the important problems facing highway safety management in Nigeria today?" Data in Table 4.67 show that of those responding to the mailed questionnaire, 100% felt that inadequate funds and lack of coordination ranked highest among the important problems facing highway safety management in Nigeria . Ninety-three percent of the respondents believed that lack of manpower was an important problem and 83% indicated lack of effective leadership . Seventy-one percent considered lack of facts and data an important problem and 52% attributed the problem to inefficiency of highway safety officials. Apart from the problems identified by the mailed questionnaire respondents, the author , in the course of the survey identified some other important problems facing highway safety management in Nigeria. These problems were identified during the personal interview. They were lack of support, deficiency in the management process, lack of authority, lack of information, independence of line departments and non-use of research works. Below, these problems are discussed briefly. lack of Support The author campared highway safety programs with other contempo- rary govermmental programs like Price Control, Operation Feed the Nat ion, W: Responses of the mailed Questiamaire Respondents in Percentages" relative to the question: "What do you think are the important problems facing highway safety management in Nigeria today?" PROBLEM RESPONDENTS N = 116 Percentages Inadequate fund 116 100% Lack of coordination 116 100% Lack of manpower 108 93% Lack of effective leadership 95 82% Lack of data and facts 82 71% Inefficiency of safety officials 60 52% *Peroentages are approximated to the nearest whole number. 164 National Youth Corps, and Universal. Primary Education. It seemed that highway safety did not enjoy the type of high support given to these programs. Data in Table 4.64 for instance which indicated that 89% of the interviewees felt that lack of support was one of the existing problems in both states and local intergovernmental relationship bore testimony to this problem. This problem of lack of support was also mentioned by interview respondents as being one of the greatest barriers for the RSC in implementing its charge in highway safety. (See Table 4.12) Deficiench in the Managerent Process In the review of the managerent process in the last section of this chapter, it was apparent that no specific evaluation method or technique was utilized in highway safety management practices in Nigeria. (See Table 4.50) Survey respondents believed there were no guidelines on all areas of management process. (See, Tables 4.24, 4.32, 4.41, and 4.45) It was indicated that programs were not evaluated (Table 4.48) or reviewed (Table 4.53) . It was indicated by most respondents that nobody seemed to be specifically responsible for performance of highway safety programming. (See Table 4.29) Alternative programs were indicated not to be considered in highway safety programming by a majority of the survey respondents. While highway safety programs and plans were indicated by a majority of survey respondents not to be fully prepared and documented (Table 4.30) or recorded (Table 4.22) , objectives and priorities in planning were not set as indicated by majority of the survey respondents. (See Table 4.28) Also, a majority of the survey respondents indicated that budgets were not tied to planning 165 and programming . lack of Authority During the interviews, most of the interviewees complained bitterly about lack of authority of the RSC in exercising its day to day activities in highway safety. All of the persons interviewed in the survey believed that of all the recommendations made by the RSC to the government, none had been implerented. (See Tables 4.68 and 4.69) These recamendations were: 1. ban all trucks from carrying passengers in cities; 2. compulsory bi-annual road test for all classes of vehicles, 3. pedestrian lanes must be created in cities; and 4 . highway code should be improved and expanded. All the respondents agreed on recommendations 1, 2, and 3, and 67% agreed on recommendation 4. The RSC had no executive powers to compel the implementation of these recamendations nor possessed any authority to implerent the recamendations by iteself. In Table 4.69, all the respondents indicated none of these reccmmendations had been implemented . Lack of Information The author learned from sate of the cements of the practi- tioners interviewed that there was minimal information exchange on highway safety activities among states, line departments and other units involved in highway safety. Same of these practitioners mentioned that 8012 of the useful information on highway safety that 166 Table 4.68: Responses of the Interviewees in Percentages"r relative to the questim: "that have been saxeoftherecamexdaticmsthattheRSChas made to the government or other appropriate bodies?" R E S P O N D E N T S WI (N N = 18 Percentages 1. Ban all trucks from carrying passengers in cities e.g. Bolekaja. 18 100% 2 . Compulsory bi-annual road test for all classes of vehicles 18 100% 3. Pedestrian lanes must be constructed in cities 18 100% 4. Highway Code should be improved and expanded 12 67% *Percentages are approximated to the nearest whole number . 167 .8 .v 033. 5 @3350 0mm gamma—p.500“ 0005. w... M095: 0353 3.0.0.80: 0:» on 003% 0.8 0083.00.89. wood 3 mo 0 mo 0 we 0 mo 0 w c m E f. w c v G A a c ell-lull: 0.62 v 830395 m Banana-fig N 8.3093; H 8.3g 1 .lllllllLi. wumzommmm gaunz mazmnzommmm Ill all-L ..memnmoum “58085.: 3033 came—end 05 «0 when m mm 60303305 3.... 8383. 33833 803 :83; 085 mo 88 83.? "83836 0:» 3 03.333 «gunman—00$ 5. 000,038.35 mo m0; "me .v 3nt 168 was available was kept secret and classified. Thus practitioners had no access to them. An example was made of police accidents reports that were not made public or available on request to practitioners. 'lhe majority of the survey respondents, however, indicated that: l . Flaming information was not provided in highway safety (See Table 4.23) 2 . Information on program execution and control was not available (See Table 4.43) 3 . Current program information was not available (See Table 4.34) . Also, all the survey respondents believed that program execution information was not recorded. (See Table 4.44) Independence of Line Departmnts The author learned during the course of the interviews that the line departments involved in highway safety generally considered their respective functional responsibilities as top priority and gave secondary consideration to highway safety work . The author learned that as a result of this line departmental concept, when highway safety programs were consistent with departmental operations there was usually substantial acceptance and vice versa. In addition, a majority of the survey respondents indicated that safety programs that crossed departmental lines were not prepared and documented . (See Table 4. 35) Non-Use of vRosevarch Works It was apparent from the survey that while all the survey respondents felt that research work covld help to inprove highway 169 _ _ we 0 we 0 ”BOA v.3 wo o *0 6 $00..“ an 3.3 ”v3.8 08 8M g #28 OZ mmfi g g augnfia Hang mu.— I 2 g m.— I 2 m H. 2 m 0 2 0 an m a an 170 £095: 0353 000.30: 05 3 egg 0AM goon—00.89. 1 ... Ila we e we e weed e: we e we meea ea 0 G w G _ w G w C w w G ....llll. g ”from oz 00% g 92.8 00M g g 03583008 and?! m: n 2 g 3 a z mazmozommfim 260300 0a :00 gag D035 UHMMdHH 93032 .I. 5.5:...qu ggu-.§uu§fl6figuflfi§§8= “833053 9330“" «ammuEOHAE 5 my; 0505530020 95 00030.3.u0u5 05 no 0008900: a: .v 3nt 171 traffic safety management in Nigeria (See ‘i'abie 4.70) , data in Table 4.46 show that 83% of the interviewees and 88% uf mailed questionnaire respondents indicated that decisions made during program.execution were not based on research work. The author learned, however, from general discussion and comments by some interviewees that as a result of apparent non-use of research.works by practitioners, decisions were indicated to be sometimes arbitrary. The Traffic Decree 1977 entitled "warning to Motorists" was frequently cited as an example cf non-use of research works in making decisions that affected highway safety . SIMMARY Presented in this chapter was an analysis of the data and information obtained from an 83% return of completed questionnaires from 140 highway safety practitioners throughout the country and the results of interviews with 18 influential highway safety practi- tioners. The chapter was divided into five sections -- one for each of the areas of interest. Individual tables consisting of the percentages of responses toward certain items in each section and a narrative description presenting the findings for each table was included. rI'he statistical data indicated that highway traffic accidents, fatalities and injuries and costs have shown an upward trend over the past six years. Regarding the organizational structure of highway safety management, four basic structures were identified. 172 The majority of the respondents thought that the states played the most prominent role in highway safety. While local governments were indicated to have made little contribution to highway safety, it vas revealed by a majority of the respondents that the private sector was involved at the local level even though the public sector was not formally considered in a state 's highway safety program. As indicated by a majority of. the'respondents, no resources were provided for the private sector. The data revealed that there was no management process specifi— cally geared to planning , programming and evaluation. Management practices were indicated to be characterized by lack of long-range planning. Data also show that budgeting was not tied to planning and programming while program execution was not based on research works. The majority of the respondents felt that deficiencies existed in the flow of highway safety program information and indicated that communication channels were mainly by letters and through committees. Regarding the RSC in highway safety activities, the majority of the respondents felt that the RSC had not been effective; that the RSC should continue to exist; that the RSC should be granted executive power; that the RSC was funded by the Federal Government; that no professional or specialist was employed or utilized by the RSC; and that the main functions of the RSC was the organization of. Road Safety Week Campaigns. Data indicate that not enough funds were provided for the cperat ion of. highway safety programs. 173 While a majority of the opinions of the respondents showed that problems of coordination existed among the various participants in highway safety management, they also indicated that there was a serious lack of any highway safety coordinating authority in highway safety managerent. The opinions of the respondents from the mailed questionnaires relative to important problems facing highway safety management in Nigeria were in close agreement on the following: inadequate funds, lack of coordination, lack of manpower, lack of effective leadership, lack of facts and data, and inefficiency of safety officials. Other relative problems facing highway safety management in Nigeria were identified by the author and these included lack of support, deficiency of line deparm‘ents and non-use of research works. In Chapter V, a summary, conclusion, guidelines and recommendations (management model) , suggestions for further research and discussion will be reported. [.41]! lull-Ill Illlll. Ill 44‘ CHAPTER 'V SUMMARY, CONCLUSIONS, RECOMMENDATIONS, SUGGESTIONS FOR.FURTHER RESEARCH AND DISCUSSION In the preceding Chapter, the findings of the survey were presented. The purpose of this chapter is to present: 1. ZXsammery'of the study, including the major findings 2. Conclusions which the data warrant 3 . Certain reccmmerxiations (management model) based on the findings of this survey concerning highway safety management practices in Nigeria 4. Suggestions for further researdh 5. .A discussion of general feelings of the writer which are not supported by the data. SUMMARY Statement of the Problem The basic concerns of the survey were: 1. To review the involvement of federal, state and local governments and the private sector in the highway safety field. 2. To present the management practices and identify the 174 175 Specific and principal problems in higl'May/safety management in Nigeria. 3. To formulate and develop a highway safety management model for highway safety management in Nigeria. Respondents were asked for Opinions and comments on items dealing with highway safety management practices in Nigeria both in the public and private sectors. 'Ihese items were included in the following three sections: 1 . Highway Safety Managetent Structure and Organization in Nigeria 2 . Highway Safety Management Practices (the management process -- planning, programming, budgeting, execution and control, and evaluation) 3 . Highway Safety Intergovernmental and Private Organization Relationships . The Method of Procedure This research survey was limited to a sample of 161 higmay safety practitioners throughout the country - 21 were interviewed while the remaining 140 were surveyed through mailed questionnaire. An opinion questionnaire was developed to obtain opinions on items stated in the sections outlinedabove. Copies ofthequestionnairescanbefoundin Amendices A, B, C, and D. Prior to the conduct of the interview and mailing of the questionaire , a panel of experts was selected to review the questionnaire. After the review, the questionnaire was pilot-tested. In addition, a letter of explanation was drafted and a letter of endorsement was obtained from 176 Professor Robert E. Gustafsm, Professor of Criminal Justice and Driver and Traffic Safety Education of the Highway Traffic Safety Center at Michigan State University. (See Appendices E and F for copies of these letters) After a period of four weeks, a follow-up letter was sent to those practitioners who failed to respond to the initial mailing. (See Appendix G for sarple of the letter) The initial mailing and subsequent follow-up produced an 83% return of carpleted questionnaires. A total of 116 questionnaires was received from the 140 practitioners sampled. Also, an 86% participation in the interviews was obtained. A taotal of 18 practitioners out of 21 were interviewed. The files for the interview survey and the mailed questionnaires were treated separately. Responses and comments from the respondents wererevienedandthetabulatedfindingsverereportedbya descriptive analysis using percentages in Chapter IV. Letters of appreciationverewritteitotl'erespondentswroreturnedtleir questionnaires to ackrmledge the receipt of their responses. (See Appendix H for a sample of the letter) The Major Endings Ananalysiswasmadeoftheopinimsoftherespondents cmceming highway safety management practices in Nigeria cancerning certain iters alreadylistedinthissection. Ananalysiswasalsomedeofthedata collected and statistics collected on traffic accidents, drivers, vehicles, roads, highway safety expeflitures and the highway trans- portation budget. Presented here is a smmary of the major findings of this research survey. 177 l. The statistical data from the survey showed that highway traffic unsafety problems in Nigeria were extensive in type, magnitude and cmpexity. Data also indicate that highway traffic accidents fatality and injury rates and accident costs have shown an upward trand over the past six years. 2 . Regarding the organizational characteristics of highway safety in Nigeria, the survey revealed that the organization of highway safety activities was not an integrated, cohesive operation. The majority of the survey respondents indicated that highway safety operating responsibilities were widely distributed among many federal and state governments , line departments and private sectors and administered by several individuals , group and institutions . The survey further indicated that at the federal level, highway safety was administered by the RSC; at the state level, by the state's Road Safety (berating Carmittee, line departments and functional agencies while at the local level by the private sectors through their established social and the civic organizations. 3 . Another observation made was that the RSC was a non-executive cmmission and possessed no executive power. The survey respondents indicated that its main functions were organization of Road Safety Week and distribution of funds to state highway safety agencies. The majority of the respondents felt that the RSC had not been effective in managing highway safety programs in Nigeria; that the important accomplisrment of the RSC was funded by the federal government; that no professional practitioners or specialists were employed or utilized 178 bytheRSCandthat, theRSCsl'ouldbegrantedexecutivepower. The majority of the respondents considered lack of executive power and lack of political support as the greatest barriers for the RSC in implerenting its charge in highway safety. Most respondents recommended more funds, more pcwer, more publicity and more personnel as measures to enhance the effectiveness of the RSC. 4 . The survey revealed that four basic organizational structures were used to provide overall managetent direction in highway safety. They were identified as the commission system, the committee type, the line department type and the voluntary type. 5. The Opinions of the respondents regarding the role, participation and involvement of the public and private sectors in highway safety were in close agreerent that the states played the most prominent role in highway safety . The survey indicated that with few exceptions, highway safety at the local level did not command considerable participation in state government highway safety efforts . Generally , the survey showed that private sector activity in highway safety was very much in evidence and that the private sector involvement was carried out within three main categories: public interest, representational interest and donation and sponsorship of projects . 6. m the items on managetent practices in highway safety, a majority of the survey respondents believed that there were deficiencies inthemanagementprocess inthe currenthighway safetymanageneit practices in Nigeria . - 01 planning, a majority of the respondents indicated that: 179 . planning objectives and priorities were not set . planning was made short term rather than long term . highway safety plans were not used for policy decisions . guidelines were not provided for planning and, . planning information was not provided . On programming, most of the survey respondents observed that: . programming of highway safety functions were not formalized . programming were made short term . current infonmation on programming was not available highway safety program were not formally prepared arnd documented . there were no guidelines prepared for developing program . alternative program were not considered and, . highway safety program that crossed departmental lines were not prepared and documented. The survey on budgeting showed that a majority of the respondents were of the opinion that: . budgeting did not relate to planning and programming . no revenue source was provided for surporting the private sector there were no guidelines for preparing highway safety budgets . highway safety was not entered as a separate budget categoryandwasnotconsideredaspartofthetotal transportation budget the highway safety budget generally convered a short term period, usually one year and, the RSC merbers and state representatives did not participate in the budget process On program execution and control , a majority of the respondents believed that: program execution and control decisions were not based on research works . current information on program execution and control was not available and recorded there were no guidelines for accomplishing program execution and control and, . monecouldbespecificallyascertainedtobe responsible for program execution and control . an evaluation, it was observed that a majority of the respondents felt that: 180 . highway safety programs were not evaluated . programs were never reviewed or re-evaluated no specific evaluation method or technique was found uto be in use in.highway safety . nobody seemed to be responsible for evaluating highway safety programs . evaluation of programs was not documented or distributed and, . there were no guidelines for program.evaluation of highway safety activities. In reviewing survey information and data regarding inter- governmental aspects in highway safety, a majority of the respondents indicated that: . a situation existed in which the Federal Government.mdght contact the states for services in highway safety . close associations did exist between federal and state but according to the respondents, these associations fell into the traditional political, functional, financial and intergovernmental relationships that existed between the federal and state governments. . the states did not maintain relationships with local governments nor did they have any formal arrangements ‘with the local governments in.highway safety . local government regulations did not complicate federal or state highway safety programs . there was no formnof financial aid relationship between the state and local governments nor between the federal and local governments and private sector . establishing a working relationship‘with the private sector was not generally regarded as a priority area for the state and federal highway safety agencies . crummnication channels between federal and state highway safety agencies were largely by official letters and through the RSCicrmmdttee2meetings . there was no formal communication channel between federal and local and between state and local highway safety agencies . no central coordinator existed among the council jurisdictions nor among the private sectors in highway safety 181 . prominent among the problem existing in state and local interrelationship were lack of coordination, lack of funds, lack of information, lack of political support and lack of consultation . the main problem in private and public relationships in highway safety operation was lack of coordination and, . nobody seemed to be responsible for amlying for local highway safety funds for local highway safety projects. 7 . A majority of the respondents reconmended ways of pronoting cordial interrelationships between the public and private sectors in highway safety . These recommendations included: pronoticn of coordination, regular consultation, good communications, good public relations and meetings of both representatives. 8. A majority of the respondents indicated that the important problems facing highway safety management in Nigeria included the following: inadequate funds, lack of manpower, lack of coordination, lack of effective leadership, lack of facts, data and records, and inefficiency of highway safety officials. Through the personal interviews, it was learned that there were also other problem facing highway safety management in Nigeria. They were: lack of support, deficiency in management process , lack of authority, independence of line departments and non-use of research works . 9. Itwasfoundthatnotexoughfundswereprovidedforthe operation of highway safety operation when compared with other facets of the transportation system expenditures . 10. All respondents from the survey agreed that research work could help improve highway safety management in Nigeria . 11. The respondents believed that with the present resources of 182 Nigeria - human and non-human -.—-, the highway unsafety problem could be solved. C(NCIUSICNS r[he following are the conclusions based upon the findings of the survey . 1. It was apparent that the magnitnde of unsafety problems shaved an upward trend over the past six years. While the author could not provide a full ard detailed explanation for this trend, it was noted that the sudden increase in vehicles and drivers which was not matched with a corresponding appreciable growth in road mileage both in quantity and quality had contributed to this trend. 2 . The Federal Government and states have distinctive, yet corplementary roles in highway safety. Since highway safety was a tenuous concept at the local level and since local government regulations did not handicap nor corplicate federal highway safety program , there is a need for the federal ard state governments to integrate local highway safety activities with the national safety programs through improved conditions , involvement and participation . 3 . The private sector played a substantial role in nationwide highway safety program, yet no attetpt was made to coordinate the private sector efforts with the federal and state highway safety agencies . Federal and state highway agencia have not defined the roles of the private sector nor erphasized private sector involvement in highway safety . 183 4 . The primary responsibility and authority for developing highway safety programs and organizing the Road Safety Week campaigns were vested in the RSC. Paradoxically, the survey showed that the RSC possessed no executive power to carry out those functions effectively, and had not been effective in managing highway safety programns in Nigeria. Establishing a commission with the primary role of creating a safe highway environment was necessary and essential but not sufficient for attaining that goal without executive power and an executive program director . 5. A majority of the respondents felt that highway safety functions were widely distributed and administered by several line departments, public and private agencies, individuals and institutions. It was believed that conprehensive highway safety planning and programs could be developed by incorporating all the various agencies currently involved in highway safety managenent within a single managemnt framework at the federal level. Furthermore, with prOper managemnt techniques, adequate manpower, technical personnel, ard abundant resources , the Federal Government could manage highway safety program throughout the country effectively, identify highway safety goals and evaluate highway safety needs . 6. A majority of the respondents believed that the states played the most prominent role in all facets of highway safety activities. while present political intergovernmental structure in Nigeria required that highway safety goals and needs be set by the states, past experience indicated that this capability had not been shown. Consistent, 184 therefore, with the federal role of providing leadership in highway safety, the Federal Government occupies a favorable position to assume that role. Since most states are presently managing some comprehensive federal programs , a federal approach to the management of highway safety in Nigeria appears to be feasible. 7 . The data presented in the survey indicated rather clearly that there were many deficiencies in the management process in highway safety management practices . Management practices were characterized by either limited or total lack of long range planning and programming, and evaluation techniques. The budgeting process was not formalized and not tied to planning and programing, and the highway. safety budget was not considered as part of the total highway safety transportation budget . Instead, it was entered under the recurrent expenditure . Program execution and cmtml decisions were not based on research work and no comprehensive guidelines were provided for the essential areas of the management process. Thus, the need for improved program management was apparent . 8. Findings indicated that the prime areas requiring improvement in highway safety public and private inter-relationship were indicated to be in the reciprocal flow of program information, uniform records system, coordination, consultation , financial support, active particiaption, good communications and public relations. 9 . 'Ihe important problems identified facing highway safety management practices in Nigeria included: inadequate funds, lack of coordination , lack of manpower , lack of political support , lack of facts and data, lack of authority, independence of line departments 185 deficiencies in management process and non-use of research works . 10. Data indicated that not enoigh funds were provided for the operation of highway safety programs when compared to other areas of the transportation system. The highway safety fund of 21400.000 ($600,000) per annum out of which $15,000 ($7,500) was allocated to each state was definitely inadequate to carry out effective highway safety efforts. In conventional terms, this was approximately one three thousandth of the total expenditure on highway tranSportation system per annum. There is much to be gained by investing more in highway safety . Moreover , there were indications from the survey findings that the criteria for «1 distributing this fund was not only inconsistert but also not fully understood at the state level and often not understood at all at the local level. 11. The evidence presented in this survey showed clearly that highway safety management practices in Nigeria suffered from lack of facts and data. Essential data and facts on drivers ' records, vehicle registrations, accident types, accident costs, highway safety expenditures, personnel, miles travelled, types of roads and population census were not available or known. The key problen in the lack of data in highway safety was primarily the lack of a good traffic records system and lack of organization of raw data for use by the practitioners, decision makers and researchers in highway safety. It is apparent therefore , that a good traffic records system would have to be initiated. 12. Sirvey findings bowed that one prominent problem 186 inherent in highway safety management practices in Nigeria identified by all respondents was the lack of coordination. There is therefore a serious need for accomplishing nationwide coordination and cooperation among all highway safety agencies currently providing highway safety services . WICNS AND GUIDELINES On the basis of the data collected and findings reported in this survey and the conclusion reached, the following recomendations and guidelines are made. 'Ihese recommendations, in form of a managetent model , are presented in terms of: l. organizational structure; and 2 . management elements of coordination, planning , evaluation , programming, execution and control, and budgeting. These recommendations were based on the working hypothesis that in the second half of the current five year Development Plan, the Federal Government would concentrate on the measures that could improve highway safety planning and management systems since the most pressing needs for improving highway safety lay in the areas of managerent systems arnd support. For the next S-year Development Plan (1981-85) it was assumed that the recommendations in this study would provide the basis for establishing a viable highway safety management program. It is recommended that , as the first approach to highway safety 187 management operation in Nigeria , the Federal Government raise public awareness concerning highway safety and promote increased visibility for highway safety issues through the following: . disseminating literature on Specific topics on highway safety . conducting a public information service such as providing news releases and topical articles to the media, and . providing roadside lectures and teaching of highway users Organizational Structure Federal Highway Safety Commission: The Federal Government should perform a leadership role in highway safety if the federal effort is not to be lost in the present fragmentation of highway safety. It is recomnenwd, therefore , that the central authority in highway safety in Nigeria be vested in the Federal Government. In this respect , an executive Federal Highway Safety Commission should be established as a leadership element in the Federal Government to replace the existing RSC. (See model legislative decree for such an establishment in Appendix I) (See also Figure 5.1 for this structure) The Federal Highway Safety Commission (FHSC) slnould be established and charged with the following responsibilities: assisting the Federal Governemt in defining goals, setting safety priorities and objectives , and identifying safety needs promoting legislation for highway safety activities 7 Membmm MH<>H~E _ moubmm mania”: Tasmanian _ Mosumm HH<>HMm mmmBHszoo 453 # moBmm ”mu—35H”: Menbmm NH<>HNM L Egg a 1. 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