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                        Road Safety Audit Toolkit for Federal Land Management Agencies and Tribal Governments


            
            In This Section
        Safety Data Analysis & Tools
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                Chapter 3: How Do I Establish an RSA Program?
This section describes the process to initiate an RSA program, including potential program structures, partners, and funding sources.  Discussion on how to prioritize locations to conduct RSAs is also included.  It presents potential challenges and provides suggestions for overcoming these challenges.  Finally, it suggests performance measures that may be used to evaluate the progress and success of the program.

How are RSA Programs Structured?

The successful integration of RSAs into any agency requires several important elements: management commitment, an agreed-upon policy/process, informed project managers, an ongoing training program, and skilled RSA team members.  Program structures vary by agency depending on the goals and objectives as well as available resources and level of training.  The *FHWA Road Safety Audit Guidelines* recommends an approach for introducing RSAs that typically includes:

Piloting RSA projects – conduct one or more projects with in-house personnel that are guided by individuals experienced in the process.
	Developing a formal RSA policy/process – use the experience from the pilot projects to develop an RSA policy/process suited to the local conditions; establish criteria for site selection, procedures for conducting and documenting field reviews, and opportunities for additional training.
	Monitoring, refinement, and promotion of the RSA policy/process – periodically review the current policy/process to ensure the desired level of success is being achieved and modify as necessary to increase efficiency and effectiveness.How Do I Prioritize Potential RSA Locations?

There are numerous methods for prioritizing RSA locations.  The method of choice will depend on the availability of staff and data resources, as well as the number of requests for RSAs.  If RSA efforts are request-based, it is not necessary to waste valuable resources on a complex prioritization process when the number of requests is relatively low; it may suffice to simply prioritize locations on a first-come-first-served basis.  As the number of requests increases, it will become necessary to prioritize and perhaps even screen locations, which requires a formal (and likely data-driven) process.  This does not mean that the process has to be completely quantitative and objective.  However, good transportation safety planning should focus RSA efforts on areas with the highest concentration of crashes, particularly deaths and injuries.  Other factors to be considered can include timeframe, cost, relation to overall program goals, and stakeholder support.  Chapter 2 of the *FHWA Road Safety Audit Guidelines* suggests an application of nominal (compliance to design standards) and substantive (crash performance) safety concepts to prioritize locations; please refer to that publication for more information.

Who Should I Partner With to Establish an RSA Program?

An RSA program may be established by and housed at any one of a number of agencies.  Regardless of where the program is housed, it is critical to identify a champion to lead and promote the RSA program (or at least the establishment of the RSA program) at the highest level of the organization.  Depending on factors such as available staff, experience, and funding, FLMAs or Tribes may decide to identify a champion internally within their own agency or seek an external champion.  A champion may be an individual or may be an entire agency or department of an agency.  In any event, the champion should be knowledgeable of the RSA process and potential benefits so that RSAs can be introduced to others to promote awareness and foster support.

While the champion is responsible for introducing and promoting RSAs, there is a need to identify a support network to provide staff, funding, expertise, and public and political support. Table 4 identifies potential partners that could help establish, house, staff, fund, or support an RSA program.

***Table 4: RSA Program Participation***

**Potential Partners for RSA Program**
			**House**
			**Staff**
			**Fund**
			**Support**Tribal/State/Local DOT
			X
			X
			X
			XForest Service
			
			X
			X
			XNational Park Service
			
			X
			X
			XFish and Wildlife Service
			
			X
			X
			XTribal Technical Assistance Program
			X
			X
			X
			XFHWA (including Federal Lands and Federal Aid Division offices)
			
			X
			X
			XBIA Division of Transportation
			
			X
			X
			XPublic health agencies/officials
			
			X
			X
			XPublic officials
			
			
			X
			XOther groups (e.g., community safety teams)
			
			X
			
			XTribal Cultural Officials
			
			X
			
			XWhat Funding Mechanisms are in Place?

An important consideration when establishing an RSA program is funding, not only for the functionality of the program but also for the implementation of proposed safety improvements.  A number of funding resources are provided in this section for initial guidance.  In addition to these resources, it is recommended that Federal and Tribal agencies consult their local FHWA division, State DOT, and local Metropolitan Planning Organization/Council of Governments/Regional Planning Commission (MPO/COG/RPC) offices to learn more about available funding mechanisms.  Up-to-date information on funding opportunities can also be obtained by visiting the following websites:

Tribal Highway Safety Improvement Implementation GuideTribal Transportation Funding ResourcesFHWA Discretionary Programs websiteThe Federal government provides funding assistance for eligible activities through legislative formulas and discretionary authority, including some 100 percent Federal-aid programs and programs based on 90/10 or 80/20 Federal/local matches.  The *Tribal Highway**Safety Improvement Implementation Guide*advises that the implementation plan for a Tribal Highway Safety Improvement Project (THSIP) or highway safety project will depend greatly on which funding sources the Tribes pursue, since each source has different program eligibility requirements.  Some of the important safety-funding sources are presented in Table 5.

***Table 5: Potential Funding Sources***

**Source**
			**Website**
			**Purpose / Use****Highway Safety Improvement Program (HSIP)**
			https://www.fhwa.dot.gov/legislative-safety-programs/hsip
			Projects that improve safety.**Surface Transportation Program (STP)**
			https://www.fhwa.dot.gov/safetealu/factsheets/stp.htm
			Projects on Federal-aid highways, including the NHS, bridge projects on any public road, transit capital projects, and intracity/intercity bus facilities. Now limited to urban areas.**Transportation Enhancement (TE)**
			http://www.enhancements.org
			Projects involving pedestrian facilities and scenic highways.**Safe Routes to School (SRTS) Program**
			https://www.fhwa.dot.gov/environment/safe_routes_to_school/
			Enable and encourage children to walk and bike to school.**National Scenic Byway Program**
			http://www.byways.org/learn/program.html
			Nationally or locally designated roads with outstanding scenic, historic, cultural, natural, recreational, and archaeological qualities.**Indian Reservation Roads (IRR) Program**
			http://flh.fhwa.dot.gov/programs/irr/
			Planning, design, construction, and maintenance activities addressing Tribal transportation needs.**Park Roads and Parkways Program**
			http://flh.fhwa.dot.gov/programs/prp
			Design, construction, reconstruction, maintenance, or improvement of roads and bridges providing access to or within a unit of the National Park Service.**Refuge Roads Program**
			http://flh.fhwa.dot.gov/programs/rr/
			Design, construction, reconstruction, maintenance, or improvement of roads and bridges providing access to or within a unit of the National Wildlife Refuge System.**Forest Highway Program**
			http://flh.fhwa.dot.gov/programs/plh/fh
			Resurface, restore, rehabilitate, or reconstruct roads providing access to or within a unit of the National Forest or Grassland.**Public Lands Highway Discretionary (PLHD) Program**
			http://flh.fhwa.dot.gov/programs/plh/discretionary
			Planning, research, engineering, and construction of highways, roads, parkways, and transit facilities within, adjacent to, or providing access to reservations and Federal public lands.**Indian Health Service Injury Prevention Program**
			http://www.ihs.gov/MedicalPrograms/InjuryPrevention/
			Basic and advanced injury prevention projects.What Challenges Will I Face?

Wilson and Lipinski (Eugene Wilson and Martin Lipinski. *NCHRP Synthesis 336: Road Safety Audits, A Synthesis of Highway Practice*(National Cooperative Highway Research Program, TRB, 2004)) noted in their synthesis of RSA practices in the United States that the introduction of RSAs or an RSA program can face opposition based on liability concerns, the anticipated costs of the RSA or of implementing suggested changes, and commitment of staff resources.  Other challenges include cultural and institutional barriers (e.g., lack of support from within), lack of RSA training, and lack of long-term support.

How Do I Overcome These Challenges?

The following were identified as potential challenges to establishing an RSA program; methods to overcome each potential challenge are also presented.  Note that education and awareness are a common theme.

**Risk Management:** There is sometimes a concern that agencies conducting RSAs will be held responsible in the event of a crash after a review has been completed.  RSAs are just one of several proactive risk management techniques that demonstrate an agency’s responsiveness to the safety needs of the public.  Following the 8-step RSA process and using the information garnered from the RSA should be included in the framework of the agency’s safety management system.  It is important that agencies thoroughly document the RSA and resulting actions.
	**Funding:** A common issue with establishing and sustaining any program or activity is funding.  In many areas, funding is available from various sources to conduct RSAs. Guidance with regard to funding sources has been provided in this chapter.
	**Staffing:** Limited staff is a common issue for many agencies.  While in-house staff may not be available, there are other options to create an RSA team (see Chapter 1).  An additional resource is the FHWA Peer-to-Peer program which will assist in identifying the appropriate personnel from a nearby State or local agency.
	**Skills:**It may be difficult to sustain an in-house RSA program without proper training.  While outside options are available for an RSA lead or technical support, it may be more cost effective to complete the appropriate training and lead RSAs with in-house staff.  Even if an outside source is used, it still may prove beneficial to support the RSA team with trained in-house staff that is knowledgeable of the RSA process and specific safety issues.  Check with FHWA and State and local agencies for training opportunities.**Cultural and Institutional History:**Many Federal and Tribal lands are steeped in tradition.  As such, it may be difficult to introduce new programs or processes.  A local champion can help to overcome this challenge by explaining the purpose and benefits of the RSA process.  Agencies that have proactively involved their cultural heritage representatives within the RSA process have been successful in making roadway improvements.  Conducting an RSA provides an opportunity for senior leaders to realize the benefits of RSAs and help promote their wider acceptance.
	**Long-Term Support:** It is relatively easy to schedule a single RSA; however, it is more difficult to sustain an RSA program due to funding and staffing commitments.  In addition to the funding and staffing support discussed in this chapter, another option for long-term support is to involve the public or specific community groups.  The RSA process provides a way for the public to voice their concerns and take action.How Do I Establish Goals and Performance Measures for an RSA Program?

As support is gained to establish an RSA program, it will be useful to begin to define goals and performance measures.  Goals help to guide the direction of the program while performance measures help to identify the success of the program.  Performance measures are also important because they can be used (or may be required) to obtain or renew funding.  Example goals and performance measures are presented in Table 6.

**Goals:** Goals are generally established by a group of representatives from the agency or agencies responsible for administering the program.  Goals will vary by program; however, they should be specific, measurable, attainable, relevant, and timely.  Goals should be reevaluated over time or as they are met.  Early in an RSA program, the goals may be related to the sustainability of the program.  As the program becomes more established, goals may be related to gains in safety.
	**Performance Measures:** Performance measures can be established to indicate the relative success of the program.  They will depend on the specific goals of the program and should be established to directly measure the progress in attaining a specific goal.***Table 6: Example Goals and Performance Measures***

**Goal**
			**Performance Measure****Provide RSA training to X percent of agency personnel with Y years.**
			Percentage of personnel trained to conduct RSAs.**Conduct X RSAs per year at high-crash/risk and/or high-profile locations.**
			Number of RSAs conducted per year.**Reduce injuries and fatalities by X percent per year with low-cost, quickly implemented improvements.**
			Number of total crashes or specific crash types/severities at locations where RSAs are conducted.
      
  Book traversal links for Chapter 3: How Do I Establish an RSA Program?
      ‹ Chapter 2: What are Common Safety Issues and Potential Countermeasures?
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                    Chapter 4: How Do I Incorporate RSAs in the Planning Process? ›
                
                Book:Road Safety Audit Toolkit for Federal Land Management Agencies and Tribal Governments
              Introduction
                Chapter 1: How Do I Conduct an RSA?
                Chapter 2: What are Common Safety Issues and Potential Countermeasures?
                Chapter 3: How Do I Establish an RSA Program?
                Chapter 4: How Do I Incorporate RSAs in the Planning Process?
                Chapter 5: What’s Next?
                Resource Materials U.S. DEPARTMENT OF TRANSPORTATION

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