text:
Building Tribal
Traffic Safety Capacity
Final Report 592
Prepared by:
Esther Corbett and Robert Mickelson
Inter Tribal Council of Arizona, Inc.
2214 North Central Avenue, Suite 100
Phoenix, AZ 85004
December 2007
Prepared for:
Arizona Department of Transportation
206 South 17th Avenue
Phoenix, Arizona 85007
in cooperation with
U. S. Department of Transportation
Federal Highway Administration
The contents of this report reflect the views of the authors who are responsible for the
facts and the accuracy of the data presented herein. The contents do not necessarily
reflect the official views or policies of the Arizona Department of Transportation or the
Federal Highway Administration. This report does not constitute a standard,
specification, or regulation. Trade or manufacturers' names which may appear herein are
cited only because they are considered essential to the objectives of the report. The U. S.
Government and the State of Arizona do not endorse products or manufacturers.
Technical Report Documentation Page
1. Report No.:
2. Government Accession No. 3. Recipient's Catalog No.
4. Title and Subtitle
Building Tribal Traffic Safety Capacity
5. Report Date:
December 2007
6. Performing Organization Code
7. Authors:
Esther Corbett and Robert Mickelson
8. Performing Organization Report No.
9. Performing Organization Name and Address
Inter Tribal Council of Arizona, Inc.
2214 North Central Ave, Suite 100
Phoenix, AZ 85004
10. Work Unit No.
11. Contract or Grant No.
12. Sponsoring Agency Name and Address
Arizona Department of Transportation
206 South 17th Avenue
Phoenix, AZ 85007
Project Manager: Donald Sneed
13. Type of Report & Period Covered
Final Report
14. Sponsoring Agency Code
15. Supplementary Notes:
Prepared in cooperation with the U. S. Department of Transportation, Federal Highway
16. Abstract
Nationally, the annual motor vehicle crash ( MVC) mortality rates for American Indians per 100,000
persons have been three to four times greater than the general public. This trend has also been
consistently evident in Arizona. The annual MVC mortality rates for American Indians in Arizona per
100,000 persons have been three times higher than the statewide population.
The project purpose was to identify methods for assisting tribes to develop capacity in five areas: 1)
Decision Making; 2) Data Collection, Storage, Maintenance, and Integration with Other Programs; 3)
Equipment and Software; 4) Project Prioritization; and 5) Project Development, Implementation, and
Evaluation. The approach used to conduct the research was described in the Tribal Highway Safety
Improvement Program Model and Guidelines. [ 21]
The four- task model and nine policy and technical guidelines were developed in 2004 by the
research team from the Inter Tribal Council of Arizona, Inc. ( ITCA) as a planning resource for tribes
and the Federal Highway Administration ( FHWA) to consider when establishing a Tribal Highway
Safety Improvement Program ( THSIP) or eliminating roadway hazards on tribal lands.
17. Key Words
Fatal crashes, safety planning, safety
management, traffic safety, tribal safety, tribal
18. Distribution Statement
Document is available to the
U. S. public through the
National Technical Information
Service, Springfield, Virginia
23. Registrant's Seal
19. Security Classification
20. Security Classification
21. No. of Pages
22. Price
Symbol When You Know Multiply By To Find Symbol Symbol When You Know Multiply By To Find Symbol
in inches 25.4 millimeters mm mm millimeters 0.039 inches in
ft feet 0.305 meters m m meters 3.28 feet ft
yd yards 0.914 meters m m meters 1.09 yards yd
mi miles 1.61 kilometers km km kilometers 0.621 miles mi
in2 square inches 645.2 square millimeters mm2 mm2 Square millimeters 0.0016 square inches in2
ft2 square feet 0.093 square meters m2 m2 Square meters 10.764 square feet ft2
yd2 square yards 0.836 square meters m2 m2 Square meters 1.195 square yards yd2
ac acres 0.405 hectares ha ha hectares 2.47 acres ac
mi2 square miles 2.59 square kilometers km2 km2 Square kilometers 0.386 square miles mi2
fl oz fluid ounces 29.57 milliliters mL mL milliliters 0.034 fluid ounces fl oz
gal gallons 3.785 liters L L liters 0.264 gallons gal
ft3 cubic feet 0.028 cubic meters m3 m3 Cubic meters 35.315 cubic feet ft3
yd3 cubic yards 0.765 cubic meters m3 m3 Cubic meters 1.308 cubic yards yd3
NOTE: Volumes greater than 1000L shall be shown in m3.
oz ounces 28.35 grams g g grams 0.035 ounces oz
lb pounds 0.454 kilograms kg kg kilograms 2.205 pounds lb
T short tons ( 2000lb) 0.907 megagrams
( or " metric ton")
( or " t")
mg megagrams
( or " metric ton")
1.102 short tons ( 2000lb) T
TEMPERATURE ( exact) TEMPERATURE ( exact)
º F Fahrenheit
or ( F- 32)/ 1.8
Celsius temperature º C º C Celsius temperature 1.8C + 32 Fahrenheit
º F
fc foot candles 10.76 lux lx lx lux 0.0929 foot- candles fc
fl foot- Lamberts 3.426 candela/ m2 cd/ m2 cd/ m2 candela/ m2 0.2919 foot- Lamberts fl
lbf poundforce 4.45 newtons N N newtons 0.225 poundforce lbf
lbf/ in2 poundforce per
square inch
6.89 kilopascals kPa kPa kilopascals 0.145 poundforce per
square inch
lbf/ in2
SI is the symbol for the International System of Units. Appropriate rounding should be made to comply with Section 4 of ASTM E380
2.1.1 Develop Selection Criteria.......................................................................................... 9
2.1.2 Identify Potential Tribal Governments to Participate in Project.............................. 12
2.1.3 Select Tribal Governments to Participate in Project................................................. 12
2.1.4 Prepare Participation Proposal and Presentation ...................................................... 13
2.1.5 Participation Proposal Presented to Selected Tribal Governments........................... 14
2.1.6 Letters of Agreement Prepared for Participating Tribes........................................... 14
3.1.1 Establish a Tribal Traffic Safety Coordinating Team............................................... 17
3.1.2 Select Tribal Coordinating Team Leader.................................................................. 18
3.1.3 Define Coordinating Team Responsibilities............................................................. 19
3.1.4 Brainstorm Tribal Highway Safety Issues ................................................................ 20
3.1.5 Traffic Safety Data Availability................................................................................ 24
3.1.6 Gather and Analyze Available Data ......................................................................... 27
3.1.7 Using Data to Assess the Magnitude of the Problem Associated with Each
Tribal Highway Safety Issue..................................................................................... 31
3.1.8 Potential Safety Funding Sources to Address Identified Traffic Safety Issues ........ 33
3.1.9 Summary of Coordinating Team Activities for Determining if the Tribal
Government has a Highway Safety Problem Modified the Matrix .......................... 39
3.2.1 Investigate Potential Funding ................................................................................... 40
3.2.2 Determine Tribal Actions Necessary to Obtain Safety Funds .................................. 41
3.2.3 Prepare Funding Recommendations ......................................................................... 42
3.2.4 Decisions on Tribal Coordinating Team Recommendations .................................... 43
3.3.1 Prepare Scope- of- work for Development of THSIP or Safety Project..................... 44
3.3.2 Identify Tribal Traffic Safety Capacity Issues.......................................................... 44
3.3.3 Identify Methods to Build Tribal Traffic Safety Capacity........................................ 50
3.3.4 Develop Plan for Tribal Traffic Safety Capacity to Support the THSIP or
Safety Project ............................................................................................................ 50
3.3.5 Solicit Funding for Developing THSIP and Implementing Tribal Traffic
Safety Capacity ......................................................................................................... 51
3.3.6 Develop a Plan for the THSIP or Safety Project....................................................... 51
3.3.7 Obtain Tribal Administrative Approval for Implementing the THSIP or
Project ....................................................................................................................... 54
3.3.8 Establish an Implementation Team........................................................................... 56
3.4.1 Develop Tribal Traffic Safety Capacity and Secure THSIP or Project
Funding ..................................................................................................................... 56
3.4.2 Implement and Evaluate the THSIP or Safety Project According to the Plan.......... 57
Appendix 1 – SPR 592 Building Tribal Traffic Safety Capacity Work Plan ........................... 94
Appendix 2 – Matrix of Program Uses and Application Deadlines ....................................... 102
Appendix 3 - Activity Checklist ............................................................................................. 107
Appendix 4 - Traffic Records Data Survey ............................................................................ 110
Appendix 5 - Arizona Traffic Accident Report Form ............................................................ 113
Table 1 Summary of the Tribal Traffic Safety Model and Guidelines ........................... 7
Table 2 Tribal Selection Process Questions.................................................................. 11
Table 3 Transportation Capacity Attributes of Tribes Selected to Participate
in the SPR 592 Project .................................................................................... 13
Table 4 Potential Internal and External Partners for BTTSC ....................................... 16
Table 5 Format for the Identification and Analysis of
Tribal Traffic Safety Issues.............................................................................. 20
Table 6 Tribal Traffic Safety Issues and Actions Identified through the Tribal
Coordinating Team Brainstorming .................................................................. 21
Table 7 Records Data Availability................................................................................ 25
Table 8 Traffic Safety Issue Findings from the MVC Reports for the Three
Participating Tribes.......................................................................................... 32
Table 9 Potential Tribal Traffic Safety Program Funding Sources
for Tribal Projects ............................................................................................ 34
Table 10 Potential Tribal Traffic Safety Program Funding Sources
for Each Safety Issue or Action ....................................................................... 35
Table 11 Team Activities Regarding Safety Issues, Infrastructure and Funding ........... 39
Table 12 Tribal Traffic Safety Capacity Issues .............................................................. 46
Table 13 Methods that Can Assist Tribes to Build Traffic Safety Capacity................... 61
Table 14 Model Process Analysis and Recommendations ............................................. 74
Table 15 Model Guidelines Analysis and Recommendations ........................................ 80
Figure 1 MVC Death Rates for AZ and United States for All Races and for American
Indians/ Alaska Natives from 1999 through 2004 .............................................. 3
Figure 2 MVC mortality rates for American Indians/ Alaska Natives
and all races in AZ, 1980, 1990, 1995- 2005...................................................... 4
Figure 3 American Indian Reservations and Transportation District Boundaries ........... 5
ADHS Arizona Department of Health Services
ADOT Arizona Department of Transportation
ALISS Accident Location Identification Surveillance System
ATAR Arizona Traffic Accident Report
ATRC Arizona Transportation Research Center
AZ Arizona
BIA Bureau of Indian Affairs
BIADOT BIA Division of Transportation
BIAHSO BIA Highway Safety Office
BIA WRO BIA Western Regional Office
BIA WRO DOT BIA Western Regional Office Division of Transportation
BTTSC Building Tribal Traffic Safety Capacity
CAD Computer aided drafting
CBC Capital Budgets Committee
CD Compact disk
CDC Centers for Disease Control and Prevention
CPS Child passenger safety
CRIS Criminal Records Information System
DOT Department of Transportation
DPS Department of Public Safety
DUI Driving Under the Influence
EHS Environmental Health Services
EMS Emergency Medical Services
FARS Fatality Analysis Reporting System
FHWA Federal Highway Administration
FY Fiscal year
GIS Geographical Information System
GOHS Governor's Office of Highway Safety
HES Hazard Elimination Program
HSIP Highway Safety Improvement Program
IHS Indian Health Service
IHS OEH IHS Office of Environmental Health
IRR Indian Reservation Roads Program
ISDEA Indian Self- Determination and Education Assistance Act
ITCA Inter Tribal Council of Arizona, Inc.
MADD Mothers Against Drunk Driving
MIS Management Information Services
MOA Memorandum of Agreement
MPO Metropolitan Planning Organization
MS Microsoft
MVC Motor vehicle crash
NEMSIS National Emergency Medical Services Information System
NCIC National Crime Information Center
NHTSA National Highway Traffic Safety Administration
NRC Natural Resources Committee
OEM Office of Emergency Management
OSHA Occupational Safety and Health Administration
PAG Pima Association of Governments
PD Police department
PL Public Law
RFP Request for Proposal
RIFDS Road Inventory Field Data System
ROW Rights of way
RPMS Resource and Patient Management System
RSA Road safety audit
SAS Statistical Analysis Software
SAFETEA- LU Safe, Accountable, Flexible, Efficient Transportation Equity Act –
A Legacy for Users
SEDS Social and Economic Development Strategies ( Program)
SHSP State Highway Safety Plan
SMS Safety Management System
SNAP Safe Native American Protection
SPR 592 Project identification number for this research project
SR State Route
STOP Securing Tohono O'odham People
TAC Technical Advisory Committee
TAP Technical Assistance Plan
TEA21 Transportation Equity Act for the 21st Century
TIP Transportation Improvement Program
THSIP Tribal Highway Safety Improvement Program
US United States
VMT Vehicle miles traveled
WISQARS Web- based Injury Statistics Query and Reporting System
The purpose of the SPR 592, Building Tribal Traffic Safety Capacity ( BTTSC), project
was to identify methods for assisting tribes develop their safety capacity in five areas: 1)
Decision Making; 2) Data Collection, Storage, Maintenance, and Integration with Other
Programs; 3) Equipment and Software; 4) Project Prioritization; and 5) Project
Development, Implementation, and Evaluation. The approach used to conduct the
research was described in the Tribal Traffic Safety Model and Guidelines.[ 21]
The Tribal Traffic Safety Model and Guidelines were developed in 2004 by the project
research team from the Inter Tribal Council of Arizona, Inc. ( ITCA) as a planning
resource for tribes and the Federal Highway Administration ( FHWA). A four- task model
process and nine policy and technical guidelines were prepared for tribes to consider
when establishing Tribal Highway Safety Improvement Programs ( THSIP) or
implementing roadway projects using the Hazard Elimination System Program ( HES),
now known as the Highway Safety Improvement Program ( HSIP).
The outcome of the project is expected to provide tribes the guidance to develop the
decision making and technical structures needed to build traffic safety capacity. The
eventual benefit will be the reduction of motor vehicle crashes and associated deaths,
injuries and property damage occurring on reservations. Nationally, the annual motor
vehicle crash ( MVC) mortality rates for American Indians per 100,000 population have
been three to four times greater than for the general public. This trend has also been
consistent in Arizona ( AZ). The annual MVC mortality rates for American Indians in AZ
per 100,000 population have been three times higher than the statewide rate.
Through a competitive process, three tribes in AZ were selected to participate in the
project. The tribes selected were representative of small, medium, and large tribes in the
state. Each participating tribe agreed to a Technical Advisory Plan ( TAP) that outlined
the project responsibilities.
A comprehensive Tribal Traffic Safety Funding Guide[ 22] was developed in 2006 in
anticipation that the tribes participating in this project would need funding to implement
their traffic safety programs or projects. Forty- one potential traffic safety funding
programs were identified and described in the guide. The name, description, funding,
and administering agencies, funding uses, eligibility and application requirements,
application timing, funding source and level, contacts, funding requirements, and
information sources are shown for each program.
Teams, formed by lead staff assigned by the tribal leadership, were tasked to assess the
safety issues. Each team was composed of a wide range of tribal departmental interests
and, in two instances, involved external agencies. The teams utilized brainstorming,
preliminary MVC data analyses prepared by the research team, and local knowledge to
identify lists of traffic safety issues.
The availability of crash, roadway, emergency medical services ( EMS), and citation data
was explored. Predominantly, the available crash data were analyzed to determine the
magnitude of each safety issue for each tribe. The teams prioritized the greatest needs,
and selected potential funding sources to implement a safety project.
Two teams identified specific funding sources for at least some aspect of their highest
priority projects. Tribal actions necessary to secure funding were acknowledged, and
steps were taken to obtain the funding after the tribal councils or tribal leaders concurred.
A discussion of employing project implementation teams was presented. The utilization
and composition of an implementation team for each tribe varied, because of the differing
nature of the three traffic safety projects.
Implementation plans for each tribe's priority project were created. Two teams designed
detailed work plans for the entire project, and one team developed the scope for a portion
of the project. The plan for one of the teams included specific outcomes, dates, and
responsibilities for each portion.
The planning actions for building traffic safety capacity have been described. The plans
differed among the tribes, because of the three project types for data management, occu-pant
protection, and roadway improvement. An analysis identified the needed capacity to
address the five capacity areas. Issues surfaced within all five of the capacity areas.
A guide, listing capacity- building methods for the five capacity areas, was developed for
the tribes. The methods for increasing tribal capacity were defined by program initiation;
program organization; program staffing; training; resources and other actions. Although
the list of methods is not exhaustive, the guide provides a sound basis for identifying
specific capacity building methods to meet individual tribal circumstances. The guide
also identifies potential sources of participation or support for implementing the iden-tified
capacity building methods. Both potential internal and external participation and
support sources are listed for methods that can be implemented internally or using
external expertise.
This project presented the first opportunity to test the validity of the Tribal Traffic Safety
Model and Guidelines.[ 21] Each of the four tasks of the model process and each of the
nine component guidelines were analyzed on the basis of the experience gained from
applying them to this research project. The results of the analysis have been presented in
recommendations for either retaining or modifying the model and guidelines in their
present form. A revised Tribal Traffic Safety Model and Guidelines[ 21] is available by
contacting the Inter Tribal Council of Arizona, Inc.
Ten conclusions and five recommendations are presented. Although each of the tribes
participating in this project made strides in building its tribal traffic safety capacity, none
of the three reached a high level of capacity building. There are several reasons for this
outcome. The availability of good MVC data and resources to address transportation and
traffic safety at the tribal level are major factors. An expanded tribal traffic safety
capacity building program should be a future consideration.
Tribes and their citizens have been severely impacted by the consistent and numerous
occurrences of MVCs on tribal lands in AZ. Figure 1 presents the 1999 through 2004
national MVC mortality rates for American Indian and Alaskan Native populations
compared to the total populations in AZ and the US.[ 1]
Figure 1: MVC mortality rates for American Indians/ Alaska Natives and all races
in the US and AZ, 1999- 2004.
15.3 15.5 15.4 15.7 15.3 15.2
19.0 19.9 19.5 20.9 20.1 19.6
28.0 27.5 26.4
29.3 28.4 26.4
67.2 67.3 66.0
1999 2000 2001 2002 2003 2004
Age- Adjusted Mortality Rate
( Deaths/ 100,000 Population)
All Races ( US) All Races ( Arizona) AI/ AN ( US) AI/ AN ( Arizona)
Data Source: Centers for Disease Control and Prevention, National Center for Injury Prevention and
Control.[ 19]
In AZ, the MVC mortality rate for American Indians has been almost four times the rate
for the next closest ethnic group. From 1990 through 2000, this rate has been 74.3 deaths
per 100,000 population. MVCs are the leading cause of death for American Indians, ages
1 to 44.[ 2]
According to 1998- 2005 combined data provided by the AZ state departments of health
and transportation, a portion of the twenty- two tribes in AZ lost 903 members with an
estimated economic impact of $ 904,431,000. [ 2- 17] These figures may be underestimated
because the MVC mortality data specific to each of the twenty- two tribes have not been
available. From 1998 through 2003, the Arizona Department of Health Services ( ADHS)
published mortality information for fourteen of the twenty- two tribes and expanded this
information to include five additional tribes in 2004 through 2005.
Figure 2 shows the trends in the MVC mortality rate for American Indians in AZ in 1980,
1990, and 1995 through 2005. Although there has been a downward trend, the rates for
American Indians have still exceeded the statewide rate by about three times.[ 21]
Figure 2: MVC mortality rates for American Indians/ Alaska Natives and all races
in AZ, 1980, 1990, 1995- 2005.
23.6 23.7 23.3 20.9 20.8 19.9 17.5 17.2 18.5 18.0 18.1 18.9
82.2 83.3
71.5 74.2
63.2 65.9
1980 1990 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005
Age- Adjusted Mortality Rate
( Deaths/ 100,000 population)
Arizona AI/ AN in Arizona
HP 2010 Objective: Reduce deaths
caused by motor vehicle crashes to no
more than 16 per 100,000 age adjusted
Data Source: Bureau of Public Health Statistics, ADHS. AZ Health Status and Vital Statistics Report, 2005.
The SPR 592, BTTSC, project provided the means to assist three tribes in AZ to increase
their capacity to address traffic safety, while simultaneously assessing a tribal model
process and guidance. Figure 3 shows the Indian reservations in AZ and the locations of
the three tribes selected to participate in this project. The Gila River Indian Reservation
is located in central AZ; the Hualapai Indian Reservation is situated in northwest AZ and
the Tohono O'odham Indian Reservation is in southern AZ.
Figure 3 American Indian Reservations and Transportation District Boundaries
In 2004, the Tribal Traffic Safety Model and Guidelines[ 21] was created for tribes by the
research team. ITCA undertook the development of the model and guidelines to address
road concerns and highway safety ( engineering) projects on Indian reservations. A
process, consisting of four tasks, three policy components, six technical components, and
guidelines was developed to help tribes compete for and access the HES, which is a
FHWA data driven program to identify and eliminate hazardous highway locations on
public roads. The intent of the guidance has been to assist tribes to:
1. Develop incrementally and tailor a system for managing traffic safety, and
2. Provide decision support to:
• Identify safety programs to match tribal needs.
• Meet program requirements.
• Apply for HES and other traffic safety funds.
The model outlined four basic tasks to start either a comprehensive THSIP or a safety
project. The guidance emphasized the technical requirements needed to build traffic
safety capacity and to develop a comprehensive process aimed at protecting citizens on
tribal roadways. The basic components are shown in Table 1.
The BTTSC project presented the first opportunity to test the validity of the model and
guidelines contained in the Tribal Traffic Safety Model and Guidelines.[ 21] The four tasks
of the model process and the nine component guidelines were each assessed for
relevance, based on field experience.
The project activities were interrelated: 1) Examining the traffic safety capacity of the
three tribes to implement a THSIP; 2) Assisting the three tribes to each organize for and
implement at least one traffic safety countermeasure; 3) Creating a Tribal Traffic Safety
Funding Guide[ 22] detailing the availability of safety funding for tribes; and 4) Modifying
the original Tribal Traffic Safety Model and Guidelines,[ 21] based on the field experience,
to improve the methodology and guidance for tribes.
Project Benefits
Potentially, the BTTSC project was substantive for the tribes, as well as ADOT, because
the research focused on specific capacity- building techniques to assist small rural
governments who may have limited resources. The guidance and products can facilitate
the implementation of countermeasures aimed at reducing the negative effects of MVCs.
Tribes need guidance and sufficient resources to establish and maintain a THSIP and
related activities. The technical and financial guidance serve as blue prints for organizing
countermeasures and perpetuating working relationships to improve public safety for all
Table 1 Summary of the Tribal Traffic Safety Model and Guidelines[ 21]
Components 1P hases 2 3 4 5 6
Model Tasks
whether a tribe
has a highway
safety problem
Select funding
sources that a
tribe may pursue
to address the
highway safety
Plan for a
THSIP or a
safety project
the Tribal
HES project
based on
the plan
Policy Intergovernmental
policy issues
Tribal structure,
including roles
collection, storage
and maintenance
Equipments and
and funding
Safety project
and education
Areas Decision making Data collection
and storage
and software
and evaluation
The project consisted of five principal tasks with multiple subtasks and activities, which
are summarized in the following paragraphs. The project work plan is shown in
Appendix 1.
Task 1– Identify Key Elements
The three key elements involved the research team completing: 1) The preparation of an
introduction to the project; 2) The selection of the tribes to participate in the project; and
3) The formation of the Tribal Traffic Safety Funding Guide.[ 22] The research team relied
on previous experience working with tribes to carry out these activities.
Task 2 - Implement the Model Process for a THSIP
Task 2 involved each of the three tribes undertaking major planning efforts: 1) To
determine whether traffic safety problems existed; 2) To select sources of funding to
address the traffic safety issues; 3) To plan for the development of a THSIP or a safety
project; and 4) To develop the capacity to implement a THSIP or a safety project. The
process detailed in the Tribal Traffic Safety Model and Guidelines[ 21] was utilized by the
research team to guide the tribal activities.
Task 3 – Develop Recommendations for Capacity- Building Methods to Be
Considered during the THSIP Implementation
For Task 3, the research team with assistance from each of the three teams produced
recommendations for building traffic safety capacity and implementing THSIPs. The
capacity building techniques concentrated on five areas: 1) Decision- making; 2) Data
collection and storage; 3) Equipment and software for data management; 4) Project
prioritization; and 5) Project development, implementation, and evaluation.
Task 4 – Finalize Report and Research Notes
Task 4 involved modifying the Tribal Traffic Safety Model and Guidelines[ 21] and
composing the final documentation. The modifications were based on the field
experiences achieved while assisting the tribes to apply the model processes. The model
modifications, final report and research notes were produced with feedback from the
participating tribes and the SPR 592 project Technical Advisory Committee ( TAC).
Task 5 – Present Research Results
The research team summarized the highlights of the project in MS PowerPoint ® , and
presented them to an audience selected by the SPR 592 project TAC.
The report is organized in the order that the project tasks, subtasks, and activities were
performed. This organization provides assistance in understanding the project logic and
provides continuity in reading the report.
The BTTSC project commenced simultaneously on two fronts: 1) The selection of three
tribes to participate; and 2) The creation of a Tribal Traffic Safety Funding Guide.[ 22]
Initially, a method for selecting three tribes was developed. Financial resources would be
essential for tribes to build and sustain any traffic safety initiative. Consequently, the
latter involved researching and publishing a guide on federal, state and private sources of
tribal traffic safety funding.
2.1.1 Develop Selection Criteria
A questionnaire was designed to help determine the potential capability and the readiness
of a tribe to successfully complete a BTTSC project. The questions focused on traffic
safety data, partnerships, coordination, and prior traffic safety and transportation
In most cases, the responses were acquired through telephone interviews, except in one
instance, upon tribal request, the questionnaire was forwarded to the staff for their written
responses. Indian Health Service ( IHS) Office of Environmental Health ( OEH) staff was
also interviewed to gain further insight on the coordination of traffic safety activities on
the reservations. The interview questions are shown in Table 2 on page 11 and the
background information of the selected topics is provided below.
Traffic Safety Data
The collection and maintenance of traffic records, including MVC reports, traffic counts
and the roadway characteristics are fundamental to the development of a THSIP or safety
project. Tribes are in the initial stages of establishing or enhancing the management of
their own traffic records.
For decades, the IHS and the Bureau of Indian Affairs ( BIA) Law Enforcement and the
Division of Transportation, have been the primary agents of data collection associated
with tribal traffic safety. Inventories of road characteristics, traffic counts, crash reports,
and hospitalization records have been administered by the agencies. Additionally, the
majority of tribes have relied on the IHS OEH to monitor MVC injury surveillance and to
report these findings to the tribal administrations.
With the passage of Public Law ( PL) 93- 638, the Indian Self- Determination and
Education Assistance Act ( ISDEA) of 1975, tribes have been provided options to assume
the program responsibilities from the BIA and IHS. Some tribes, either through self-determination
contracts or self- governance compacts, have managed the collection of
data on roadway characteristics and traffic counts from the BIA Division of
Transportation ( BIADOT); assumed responsibility from BIA Law Enforcement to
investigate and document MVCs on Tribal lands; and/ or taken over from IHS the
1 0
administration of health services, including records management and injury surveillance.
Additionally, some tribes have institutionalized procedures to approve and oversee public
health research involving their citizens and data sharing.
The National Highway Transportation Safety Administration ( NHTSA) prescribes the
collaboration of the four E's: education, enforcement, EMS, and engineering. For tribes,
successful outcomes require extensive internal and external collaboration, because
numerous tribal departments, as well as federal and state agencies, may potentially be
involved. Historically, the IHS through injury prevention programs, has been funding
traffic safety activities with or on behalf of tribes. Injury prevention coalitions have
assisted the tribal and IHS OEH staff conduct, monitor, and promote community traffic
safety activities.
Previous Traffic Safety Activities
Tribes have had various levels of experience implementing traffic safety activities. In a
2001 report prepared for ADHS, the traffic safety initiatives being conducted on Tribal
lands were acknowledged: 1) The majority of injury prevention activities have been
funded by the IHS; 2) The most prevalent activity has been child passenger safety ( CPS);
and 3) The two activities least likely to be addressed by the tribes or IHS have been a)
traffic records management and b) engineering projects to eliminate hazardous
roadways.[ 22]
Tribal Councils
Federally recognized tribes have diverse governing structures and processes for decision-making.
Familiarity with the organizational protocols has been key to working with
tribes. Inherent governing power and authority of the tribes have encompassed protecting
the health, safety, and welfare of tribal citizens living on Indian lands.
Agency Partnerships
Technical assistance and support have been fundamental to helping tribes to implement a
THSIP or safety project. Building upon the resources and support started by the IHS,
BIA, and ADHS have helped launch additional partnerships to improve traffic safety on
tribal lands.
Transportation Activities
The Tribal Traffic Safety Model and Guidelines[ 21] emphasized the utilization of the 4 E's
to promote safety on tribal lands. The 4 E approach required transportation ( engineering)
and EMS participation, in addition to the traditional involvement of health and law
enforcement staff.
1 1
Table 2 Tribal Selection Process Questions
Data Questions
Has the tribe completed a traffic records data assessment?
Does the tribe have an automated database of accident reports?
What is the name of the database software?
Has the traffic safety data been analyzed?
Has the traffic safety data been prioritized?
Is the data accessible to others outside of the police department?
Does the tribe have a ( Memorandum of Agreement) MOA with the ITCA to share health
Does the MOA include sharing MVC data?
Coordination Questions
Has the tribe established a traffic safety or injury committee?
What departments are represented on the committee?
Are MVCs a major emphasis of the committee?
Does the tribe have an institutional review board?
Traffic Safety Activity Questions
Does the tribe employ injury staff?
Have prior traffic safety activities been conducted on the reservation?
Has the tribe used MVC data to identify previous traffic safety projects?
Has law enforcement played a major role in the traffic safety activities?
Does the tribe have a known ( recent) traffic safety problem?
What is the problem?
Tribal Council Questions
Has Council been asked to act on any traffic safety projects?
Has the Council adopted a resolution concerning traffic safety activities?
Has the Council adopted a resolution establishing a data sharing process?
When does Council meet?
What oversight committees will require presentations to approve involvement in this
Agency Partnership Questions
Has the tribe partnered with IHS to address traffic safety?
Has the BIA WRO assisted the tribe with traffic safety?
Has ADHS identified this tribe as having high tribal MVC injuries?
Transportation Questions
Is the tribe active in transportation?
Does the tribe employ transportation staff?
How many miles of roads are on the reservation?
What are the vehicle miles traveled?
Are the tribal transportation services under a PL 93- 638 compact or contract?
What type of public law ( PL 93- 638) transportation services contract?
Has the tribe been active with the ITCA Transportation Working Group?
Other Questions
How many enrolled members does the tribe have?
What is the reservation area in acres?
1 2
2.1.2 Identify Potential Tribal Governments to Participate in Project
The project scope required that three diverse tribes participate. All tribes in AZ were
canvassed for their potential participation. Approximately 119 representatives from eight
tribal departments, relating to traffic safety, were identified from ITCA's extensive
network of contacts. The traffic safety- related departments were transportation, law
enforcement, EMS, fire, health, court, planning, and injury prevention or public safety.
A letter was prepared for the Tribal Leaders with copies for the 119 administrative staff
to: 1) Introduce the BTTSC project; 2) Solicit the tribes' participation in the interview
and application processes; and 3) Identify a lead person to address the interview and if
selected, to coordinate the project with ITCA. A follow- up letter, readdressing the
project, was prepared for four tribes that had not participated in the original request. The
remaining leadership was contacted until either final responses were achieved or time ran
out prior to the selection process. Upon conclusion of the solicitation, ten tribes affirmed
interest to participate, four declined participation, and seven did not respond.
Of the ten tribes that acknowledged interest in the project, eight tribes completed
interviews with ITCA. The eight responses were noted on the questionnaires. To
maintain the anonymity of the tribes during the selection process, numbers were
substituted for the government names on the completed questionnaires.
2.1.3 Select Tribal Governments to Participate in Project
A total of four representatives comprised the multi- agency selection team: Two
representatives from the Arizona Department of Transportation ( ADOT), one
representative of the FHWA AZ Division Office, and one project researcher. A second
researcher prepared the meeting materials and facilitated the proceedings, but did not
participate in the selection.
To facilitate an equitable assessment, the eight tribes were categorized into two
groupings, based on their population, reservation size, and vehicle miles traveled ( VMT).
Group One included the two larger tribes. Group Two incorporated the six small and
medium tribes.
Five major areas comprised the selection criteria: 1) Coordination, 2) Readiness, 3)
Demonstrated interest in transportation and/ or traffic safety, 4) Data availability and 5)
Magnitude of the transportation system. The rating system was based on a continuum of
one through five, five being the highest rating and one the lowest rating.
The selection team members discussed their individual ratings and collectively selected
three tribes as primary participants and identified three additional tribes as alternate
participants. Both the primary and alternate participants included one large tribe from
Group One, and one small and one medium tribe from Group Two.
1 3
The three primary participants selected were the Hualapai Tribe, the Gila River Indian
Community, and the Tohono O'odham Nation. The demographics for each tribe, as well as
the administration of the traffic safety related programs, were diverse, as summarized in
Table 3.
Table 3
Transportation Capacity Attributes of Tribes Selected to Participate in the SPR
592 Project
Attributes Hualapai Tribe Gila River Indian
Tohono O'odham
Size Small Medium Large
Law Enforcement Tribally
Road Maintenance Tribally
BIA- administered
Road Planning Tribally
BIA- administered
Road Construction BIA- administered Tribally
BIA- administered
EMS Tribally
IHS- administered
Injury Surveillance
and Prevention
IHS- administered Tribally
IHS- administered
2.1.4 Prepare Participation Proposal and Presentation
Follow- up with the eight tribes entailed the preparation of three customized letters to notify
the primary tribes, the alternate tribes, and the remaining two tribes of the outcome of the
selection process; and phone contact with the lead staff. Each of the eight tribal leaders
received a letter detailing the selection process and the status of the tribe's participation in
the project.
In preparation for the orientation meetings, products were generated to provide the lead
staff from the three tribes an overview of the project. The products highlighted the impact
of MVCs for the tribes and the potential economic loss, and the project goals, tasks, sched-ule,
roles, and responsibilities of the tribes and the research team. The initial products were:
1. Tribal specific MS PowerPoint ® presentations – Impact of MVCs, Model guide,
Schedule, Approach, Major tasks, Benefits, Potential resources, Agreement.
2. Overview paper – Purpose, Background, Benefits, Process, Timeline, Agreement.
3. Checklist of activities – Task 1, Determine whether a tribe has a highway safety
4. Summary of Tribal Traffic Safety Demonstration Projects – Introduction, Method,
Results, Discussion, Conclusion.
5. Tribal Highway Safety Improvement Program CD - Model process, including
four- tasks, and a guide containing nine policy and technical considerations.
1 4
Upon the recommendation from the lead staff of the Gila River Indian Community, the
introductory packets were modified to include eight handouts that supported the topics in
the original MS PowerPoint ® presentation. The three additional handouts were:
1. Selection criteria – Emphasis areas utilized during the selection process.
2. AZ MVC injuries map – Hospitalization rates per ten thousand persons, during
1995 through 1999, were mapped according to each AZ zip code area by the
ADHS. The zip code areas reflected the injured persons' residence addresses, not
where the crash occurred.
3. Chart of the estimated economic loss – Tribal specific number of mortalities,
average cost of mortalities for 1998 through 2003, and comparison to the total
number of tribal mortalities ( for 15 tribes) and the total tribal average mortality
cost ( for 15 tribes).
2.1.5 Participation Proposal Presented to Selected Tribal Governments
The lead staff, assigned by the tribal leadership to coordinate each project, was selected
from various disciplines. The Hualapai Tribe selected their Police Chief, the Gila River
Indian Community assigned the project to the Transportation Director, and the Tohono
O'odham Nation solicited assistance from both their Health and Human Services Director
and Police Chief.
Three separate orientation meetings were convened with the lead staff. Tailored MS
PowerPoint ® presentations outlined the BTTSC project and related materials were
introduced as the topics were addressed. Major concerns for all lead staff were the
project tasks and timeline.
The foremost challenge was the staffing limitations. None of the tribes had centralized
their traffic safety activities within one program nor were there staff working on traffic
safety full time. Therefore, the completion of each tribal project was dependent on staff
commitment and extensive coordination, which required time and sensitivity to the staff
priorities. To accommodate the staff, an extension was requested of ADOT for additional
time to plan and implement the three safety projects.
2.1.6 Letters of Agreement Prepared for Participating Tribes
A TAP outlining the major project tasks, responsibilities and a timeline, and was used to
finalize the cooperative working relationship between the tribes and ITCA. The
accompanying cover letter apprised the tribal leaders and lead staff of the project status
and requested signatures of the tribal leaders.
1 5
Access to available resources was vital to support the successful implementation of each
safety project. Prior to the BTTSC project, no guidance for programming or funding
traffic safety existed specifically for tribes. Therefore, early into the project the Tribal
Traffic Safety Funding Guide[ 22] was prepared to support the development of traffic safety
programs or projects and to help tribes to determine, which safety funding sources to
pursue and how to access the sources.
The program descriptions were organized by federal, state, and private sources. The
sponsoring agencies and program offices were included for the federally funded
programs. Since many of the federally funded programs are state administered, the
administrative responsibilities and contacts were considered. At the state level, the
program administrators within AZ were referenced. For tribes in other states, the
contacts will need to be researched to identify the appropriate program funding agency,
state departments of transportation ( DOT), or the Governor's Highway Safety Offices
( GOHS). Each program description included:
• Program Name • Funding and Administering
• Program Description • Program Funding Uses
• Application Requirements • Funding Eligibility
• Application Timing • Funding Source and Level
• Contacts • Funding Requirements
• Sources
During the development of the Tribal Traffic Safety Funding Guide[ 22], the federal
surface transportation program transitioned from the Transportation Equity Act for the
21st Century ( TEA- 21) to the Safe, Accountable, Flexible, Efficient Transportation
Equity Act – A Legacy for Users ( SAFETEA- LU). To the extent known, the new
SAFETEA- LU program provisions were included in the funding guide. A matrix of the
uses and deadlines for each of the programs in the funding guide is shown in Appendix 2.
1 6
Table 4
Potential Internal and External Partners for BTTSC
Tribal Departments/ Programs External Organizations/ Agencies
Police Department ( PD)
Traffic Team
Injury Prevention
Epidemiology Center
Health Department
Women, Infant, Children Program
Community Health Representative
Health Education
Injury Prevention
Area OEH
District/ Service Unit/ Clinic
Health Education
Clinic Administration
Regional Office
Division of Transportation
Law Enforcement
Road Maintenance
Management Information System ( MIS) or
Information Systems Department
Local Government Section
Engineering District Office
Traffic Records
Fire Department
Planning Department
Transportation Department
Public Works Department
Judicial Department/ Court
Education Department
Public Safety Department
Tribal Council
Mothers Against Drunk Driving ( MADD)
1 7
The Tribal Traffic Safety Model and Guidelines[ 21] provided the framework for assisting
the three tribes' to address their traffic safety capacity. The activity checklist shown in
Appendix 3 was used to monitor the implementation of the model process.
Each tribe initiated three steps to determine its traffic safety issues: 1) Recognize the
traffic safety challenges being faced; 2) Acknowledge the magnitude of the issues; and 3)
Identify potential resources to address the issues. The mechanism to carry out these
initial steps was the establishment of multidisciplinary planning teams.
3.1.1 Establish a Tribal Traffic Safety Coordinating Team
Partnerships and networks were strategic to the sustainability, credibility, and support of
the tribal traffic safety initiatives. The logistics and coordination of each planning team
was complex because of the variety and number of tribal programs and external agencies
administering portions of a traffic safety program. The research team devised a list of
potential internal and external partners, shown in Table 4, for the lead staff to consider as
they formed the teams. All the teams utilized various levels of support for their projects
from either external agencies and/ or additional tribal departments.
Gila River Indian Community
The planning team consisted of tribal representatives from the Transportation
Department, EMS, PD, Environmental Health Services ( EHS) of the Tribal Health
Authority, Human Resources and Occupational Safety and Health Administration
( OSHA) program, and Office of Emergency Management ( OEM). The team involved the
tribal MIS Department, which had data system expertise and experience working on the
original data system request, as well as responsibility for the software vendor interviews.
One external agency, ADOT's Traffic Records Section, provided an overview of the state
crash data process to help the team understand the collection and retrieval processes.
Hualapai Tribe
The makeup of the planning team included staff from the tribal PD, EMS, Health
Department, Tribal Court, Public Works, and the IHS Peach Springs clinic. The Tribal
Planning Department was solicited to prepare a grant application. Two health agencies,
IHS and ADHS, provided training.
1 8
Tohono O'odham Nation
Initially, the Executive Office was solicited for approval to interface the BTTSC project
with the work of the Securing Tohono O'odham People ( STOP) Coalition, a
multidisciplinary coalition focusing on occupant protection and reducing MVCs.
However, the Planning Department, which is responsible for transportation planning,
proposed, and, to work with the research team to implement a roadway improvement
project. The Executive Office supported this proposal. The Tribal Legislative Council
Natural Resources Committee ( NRC), which maintains transportation oversight,
facilitated the implementation team. The implementation team membership included the
NRC, Planning Department, PD, Gu Achi District ( project location) leaders, ADOT's
Tucson District Office, and the BIA's Papago Agency. External agency assistance by
ADOT's Traffic Records and Traffic Engineering sections, BIA Western Region Office
( WRO) Division of Transportation ( DOT), and FHWA provided the team with mapping
and traffic counts, a crash analysis specific to a high crash location, safety equipment,
staff to conduct a one- day class on doing a Road Safety Audit ( RSA), a team to audit the
high crash location, and a final report consisting of recommendations for improvements
at the high crash location.
Each tribe was challenged with limited resources that impacted its ability to build traffic
safety capacity. Many of these challenges were a direct result of the methods used by
federal and state agencies to award financial support to tribes. Numerous safety
programs award funds for tribal " projects," not for the establishment or the maintenance
of traffic safety " programs." Projects usually last no longer than 12 months, focus
specifically on product outcomes, and are not supportive of continuous planning
activities, such as networking, data management, and technical assistance.
Federal agencies instituted means to support the state program's flexibility and
established sufficient financial support, including bonuses, to build safety and related
transportation infrastructures, such as the state transportation departments, highway
safety offices, planning organizations, and related programs. The mechanisms created for
tribes often do not consider tribal sovereignty, which has lead to ineffective and inflexible
administrative rules and limited funding opportunities to address their safety needs.
Sufficient program flexibility and financial support directly impacted each tribe's ability
to develop a THSIP. As a result, instead of establishing a THSIP, each team started the
process by working on one or several projects specific to traffic safety. The success of
each project was determined by the collaborative opportunities and resources at hand.
3.1.2 Select Tribal Coordinating Team Leader
The various terminologies referencing safety activities – " transportation safety", " traffic
safety", " highway safety" and " injury prevention" – denoted to the tribal leadership
which staff to involve. Transportation and highway safety have been construed as
1 9
involving transportation or public works; traffic safety has been interpreted as a law
enforcement assignment; and injury prevention has been inferred as health- related.
During the introduction of the project to the tribal leaders, the research team requested
the identification of a lead staff person to oversee the project and recommended that it be
a community manager, planner, or health director.
The Police Chief managed both project planning and implementation for the Hualapai
Tribe. , the Transportation Director delegated the Transportation Planner to coordinate
the project planning and potentially the implementation phase for the Gila River Indian
Community. For the Tohono O'odham Nation, the Police Chief and the Health and
Human Services Director, with assistance from the STOP Coalition, planned for a
primary seat belt law and the Planner lead the implementation of a roadway project.
3.1.3 Define Coordinating Team Responsibilities
An Activity Checklist was produced in anticipation of the need to help the tribes define
the team responsibilities. During the first meeting with each of the lead staff, the Activity
Checklist, including the four model tasks, sub- tasks, and activities, was reviewed.
The research team's original strategy was to begin work with the smallest tribe, then
move on to assist the medium- size tribe and the largest tribe. Many of the lessons
learned from first working with the Hualapai Tribe assisted the research team to try new
approaches with the Gila River Indian Community and the Tohono O'odham Nation.
One of the learned lessons involved the team responsibilities and the use of the Activity
Checklist. The activities had been included on several of the meeting agendas with the
Hualapai Tribe. However, it soon became apparent that the Task One activities, relating
to the determination of safety issues, were too intensive for the tribe alone to complete.
This challenge was evident for both the Gila River Indian Community and the Tohono
O'odham Nation.
The data activities required more staff and computer resources than the three tribes had
available. The research team decided to identify where the data was being stored, and to
retrieve, compile, and analyze the data, so each planning team would have the necessary
information to identify and prioritize the traffic safety issues. Instead of using the
Activity Checklist to assist each planning team to define its responsibilities, such as
assessing the magnitude of the safety problem and identifying available highway safety
funding, the research team used the Activity Checklist to guide the sequence of tribal
2 0
3.1.4 Brainstorm Tribal Highway Safety Issues
At the first project meeting, each planning team, using their knowledge of the
communities, brainstormed the traffic safety challenges. The initial responses were
recorded and categorized, utilizing the first two columns of the matrix in Table 5.
Table 5
Format for the Identification and Analysis of Tribal Traffic Safety Issues
Issue or
Priority Data
and Capacity
& Bicycles
A combined list of issues and actions, identified by the three planning teams during the
initial brainstorming, is provided in Table 6. For confidentiality purposes, the list does
not include the identity of the tribe providing the issue. The list is substantial,
demonstrating that there are numerous traffic safety issues facing these three tribes and
potentially the remaining tribes in AZ. Eventually, each matrix was updated to reflect
additional issues from each preliminary crash analyses. The analyses were previously
explained under Section 3.1.5.
2 1
Table 6
Tribal Traffic Safety Issues and Actions Identified Through the Team Brainstorming
Safety Issue
Category Safety Issue or Action
The tribal court's data system has traffic data available, if a citation was
IHS will complete a multi- year injury study in the next few months, which
included hospitalization and EMS data.
The police reporting system ( Spillman) has been electronically based for the
past 18 months.
The police reporting system has querying capability.
The PD has crash history from August 2002. Prior to that time, the crash
data was maintained in the BIA- owned Criminal Records Information System
( CRIS), which is inaccessible.
AZ Department of Public Safety ( DPS) data needs to be retrieved.
Tribal accident reports are submitted to ADOT for incorporation into the
Accident Location Identification and Surveillance System ( ALISS).
The tribe has an up- to- date traffic code that includes a secondary seat belt
law and a 0.08 blood- alcohol standard.
Data will be essential in assessing and prioritizing traffic safety issues.
The tribe does not have a MIS staff person to assist in data storage and
It was acknowledged that there are good MVC ( accident) records available
for the reservation.
Follow- up traffic investigations conducted off tribal lands is time consuming
and resource intensive.
PD fatality crash reports data may be on a database.
MVC report sharing with ADOT – DPS usually responds to non- member
crashes on state routes.
County roads may be tribal or county responsibility.
The EMS database tracks runs and patient information, and serves as billing
database. The database provides non- native and native information. The
data is not shared w/ state, but can be shared with other Tribal departments if
requested. One community has a contract to perform follow- up on patients
transported to its hospital.
OEM responds to major traffic incidents and tracks costs associated with
response. It performs hazard analysis associated with transport of
hazardous materials. Not all information is put together in a database. Both
MS Access ® and paper databases are used. A central Geographic
Information System ( GIS) system would be helpful.
The OSHA Department collects data on sites that have a health assessment.
ArcView and GIS is used to track sites. Work is underway to establish a
state database. The department tracks responses to incidents. Most
records are currently kept manually.
There are some limited GIS capabilities in the Land Use Department.
Health has Resource and Patient Management System ( RPMS) data, but is
not aware if anyone is extracting information. The Injury Control Group will
be looking into the automation of data and reporting automatically for injuries.
2 2
Table 6 continued
Tribal Traffic Safety Issues and Actions Identified Through the Team Brainstorming
Safety Issue
Category Safety Issue or Action
Increase education and usage of CPS seats.
Safety belt usage survey needed.
CPS seat coordination occurring among EMS, IHS Health Educator, and
Public Health nurses
Children are not restrained in cars.
The tribe has no laws to enforce child passenger restraint. One concern is
how much to fine.
The County does CPS seat distribution in coordination with fire department
for training.
Passengers in back of vehicles.
Increased education and usage of restraint systems.
A renewed effort should be made to obtain a primary seat belt law.
Tribal members need to be educated on the use of seat belts and child
There has been discussion of the tribe updating its criminal code and
adopting state of AZ traffic laws in their entirety.
The PD has identified individuals who can provide testimony to support
occupant protection.
The tribe has no laws to enforce occupant restraint. One concern is how
much to fine.
The Department of Public Health conducted a survey to determine why
people don't wear seat belts. The tribe is considering adopting state codes
for seat restraint.
An observational seat belt survey was conducted in 2005 and the results
submitted to the PD as part of a national survey.
Driving under the influence ( DUI) of alcohol or drugs, including underage
The PD does not have sufficient signage for sobriety checkpoints.
Intoxilizers are needed.
PD does not have a phlebotomist to administer blood tests.
The PD needs to improve its capacity to test for alcohol and drugs.
Traffic enforcement needs to be increased.
Speed is probably a problem.
Many crashes occur on minor roads.
Intersection- related crashes are a problem.
There have been a lot of reports of animal- vehicle crashes.
Impaired driving is an issue facing the PD.
Rollovers due to run- off- the- road crashes.
Many crashes occur on minor roads.
Intersection- related crashes are a problem.
There have been a lot of reports of elk and livestock crashes.
There were many specific roads and road locations identified that have
safety issues. In many cases specific reasons for the issue were also
2 3
Table 6 continued
Tribal Traffic Safety Issues and Actions Identified Through the Team Brainstorming
Safety Issue
Category Safety Issue or Action
Many vehicles park along the side of the roads for a variety of reasons,
creating a hazard.
Trucks and other vehicles bypassing state highways for closures or other
reasons create a safety issue.
Time of day does not seem to be a significant factor in crash patterns.
Fence cutting for access leads to MVCs.
Transportation of hazardous materials is an issue concerning the OEM.
Road safety, rain, dirt roads, signs, lighting, community growth resulting in
increased traffic that the roads are not able to handle.
Traffic management around incidents related to homeland
security/ emergency management is a concern.
There is a safety problem on a high volume road with traffic speeding and a
mix of automobiles, semis/ trucks, and bicyclists.
Trash along the roadways is a safety issue.
( cont'd)
Growth and development will lead to increased traffic and safety problems
and the need to expand road capacity.
IHS can provide CPS education through its Safe Native American Protection
( SNAP) course.
EMS has conducted school safety fairs to promote bicycle and pedestrian
safety. Helmets and posters have been distributed.
The IHS Clinic offers prenatal training that could incorporate traffic safety
Train tribal government employees on traffic safety, which could reduce
insurance costs for the tribe.
The tribe does not have an employee traffic safety handbook.
The PD has been able to reduce the insurance premiums for its motor
vehicles by requiring drivers' education for its officers.
Training/ education for the community is needed.
The Director of GOHS should make presentations to the tribal community.
Pedestrian crashes along specific roadways and roadway locations are a
Bicyclists along high volume roadways.
and Bicycles
Pedestrians walking along and across roadways to specific destinations.
EMS response is delayed due to an inaccurate mapping and addressing
system for the reservation.
Street name signs are needed.
911 calls are routed to a community outside the reservation, where there is a
delay in getting the information back to tribal first responders.
IHS can help with the 911 calling issue.
EMS owns an extrication tool, but the tool is in a BIA extrication vehicle,
which is stored at BIA facility, resulting in delayed extrications.
Transportation of hazardous materials.
2 4
Table 6 continued
Tribal Traffic Safety Issues and Actions Identified Through the Team Brainstorming
Safety Issue
Category Safety Issue or Action
A first offenders program is needed that will provide education and training
options in lieu of penalties.
More detention facilities are needed.
The capacity of the BIA- operated detention system is inadequate.
The tribal courts dedicate one day a week to traffic citations and can handle
the traffic citation workload.
Redirecting court citation money to traffic safety should be a consideration.
Speeding, especially with non- members driving through the community.
The possibility of applying for IHS tribal capacity funds would allow hiring a
full time injury prevention specialist for the tribe.
Other potential funding sources for traffic safety include fuel tax and vehicle
licensing agreements with the state.
Traffic safety relates to two of three Health and Human Services
departmental objectives – injury and alcohol interventions.
The coordinating team could be augmented by organizations with an interest
in or responsibility for traffic safety, such as schools, MADD, Explorers, tribal
court, Youth Council, and ADOT.
3.1.5 Traffic Safety Data Availability
The NHTSA traffic records guidelines had been referenced in the Tribal Traffic Safety
Model and Guidelines and served to guide the data collection activities of the planning
teams. NHTSA has recommended including six types of traffic records in the
development of a Safety Management System ( SMS): 1) Crash, 2) Roadway, 3) EMS, 4)
Citation/ adjudication, 5) Driver licensing, and 6) Vehicle licensing.[ 22]
A majority of the tribal traffic records have been collected by agencies outside of the
tribes. ADOT processes the data for all driver and vehicle licensing in Arizona. The
BIADOT has compiled and archived the roadway data for all three tribes. IHS has
collected and maintained the EMS and injury surveillance data pertaining to its patients.
The mechanism for tribes to contract services or programs from the BIA and/ or the IHS
is PL 93- 638, the ISDEA. In the case of traffic safety, the tribes, using PL 93- 638, can
assume responsibilities for transportation, law enforcement, EMS, and/ or medical
services, including the collection and maintenance of the crash, citation/ adjudication,
roadway, traffic, and EMS records.
Traffic Safety Data Survey
A Traffic Safety Data Survey was designed to assist the tribal project teams to determine
actions to establish or enhance the electronic management of traffic records. The Traffic
Safety Data Survey was abandoned and replaced by a Traffic Records Checklist
developed for a concurrent project conducted for FHWA. Rather than collecting
information on the various systems, the identification of the data elements proved more
2 5
useful. Several approaches were used by the research team to compile the tribal
responses: The research team: 1) Requested the lead staff persons to interview tribal
department directors or program managers to acquire responses, 2) Asked the planning
teams to collectively respond during a planning meeting, or 3) Worked with the tribal
departments to interview the appropriate staff to collect information. Strategy three
proved to be the most effective. The staff were assured the responses would not be
distributed outside of the teams. The Traffic Safety Data Survey is shown in Appendix 4.
Traffic Records Availability
Four of the six traffic records recommended by NHTSA were applicable to the BTTSC
project: 1) Crash, 2) Roadway, 3) Citation, and 4) EMS. Table 7 provides overviews of
how these four traffic records have been generally managed for the three tribes. The
information presented was derived from interviews with the tribal, BIA, IHS, and ADOT
staff. The Gila River Indian Community administers the transportation, EMS,
enforcement, and medical services. The Hualapai Tribe oversees transportation, EMS,
and enforcement; IHS provides medical services. The Tohono O'odham Nation directs
enforcement; the BIA conducts transportation activities, and IHS provides EMS and
medical services.
Table 7
Traffic Records Availability
Crash Data Overview Crash Data Findings
PDs respond and document reportable
MVCs on public roads. ADOT developed
the state Arizona Traffic Accident Report
( ATAR), ( see Appendix 5), using the
NHTSA traffic and highway standards, to
document the reportable crashes, and the
accompanying Manual of Instruction to
promote the standardization of crash
Law enforcement officers responding to
MVCs occurring on Tribal lands may be
from tribally administered PDs, the BIA
Law Enforcement, or the DPS. Various
response arrangements between the tribal
PDs and the BIA and DPS have been in
place. The arrangements depend on three
factors: 1) Ownership of the road, 2)
Involvement of a tribal citizen, or 3)
Involvement of a tribal police officer or
The tribal police have been using the
ATAR to collect uniform crash data.
Each of the three tribal PDs has an
automated data system. However, the
systems have not been used to capture
every data element on the ATAR.
The IHS Tucson Area, OEH, developed
for the Tohono O'odham PD a MS
Access ® database to maintain crash files
pertinent to injury surveillance and have
assisted the PD to reconcile crash data
with ADOT Traffic Records. The IHS has
routinely utilized these crash files to
evaluate a seat belt promotional project
and to survey MVC injuries and fatalities
for the Tohono O'odham Nation.
2 6
Table 7 continued
Traffic Records Availability
Crash Data Overview Crash Data Findings
Some of these crash reports are
forwarded to ADOT to input into the state
database, ALISS. Each tribe has
determined to what extent the PD shares
crash data with ADOT. ADOT has been
agreeable to accepting partial crash data
from the tribal PDs. The BIA forwards
copies of the crash reports to ADOT.
DPS forwards the reports to ADOT, but
may not forward copies to the tribal PDs.
One of the foremost findings was that the
majority of decision makers, police
officers, or transportation planners for the
tribes have not been familiar with the
state or federal collection processes
used to compile crash data or that the
data are utilized by transportation
agencies to identify high crash locations
and/ or to justify roadway improvements.
Road Data Overview Road Data Findings
The BIADOT has been responsible for
compiling 55 factors related to each
public road section on tribal lands, which
is maintained in a national inventory
database, the Road Inventory Field Data
System ( RIFDS). The tribe, through PL
93- 638, may contract the data collection
for the IRR inventory from BIADOT. Either
the tribe or BIADOT may sub- contract the
responsibility to a consultant. The
consultant is obligated to submit the final
data collection to the administrator of its
contract. Tribal councils are responsible
for reviewing the inventories and
providing Tribal Resolutions to insert or
delete road routes from the inventory.
The BIADOT has been reviewing and
approving the roadway data and updating
RIFDS. In addition, the BIA agencies or
tribes that have contracted road
maintenance responsibilities from the BIA
conduct the traffic counts.
Roadway inventories have been estab-lished
for each of the three tribes partici-pating
in the project. However, the BIA
WRO DOT, tribes, and consultants have
been working on the inventory updates
for many years. One of the last activities
has involved adding the county and state
routes ( SR) to the IRR inventory.
The tribes have associated the IRR
inventory, including the roadway data,
with the Relative Need Distribution
Factors used to compute the IRR
program funding allocations for the tribes.
The roadway data are a portion of data
used to calculate the cost to improve a
road to standard and accounts for 50
percent of the formula. However, the
roadway data are not being used in
conjunction with crash data to document
MVCs or high crash locations for the
three tribes.
Citation Data Overview Citation Data Findings
Tribal or DPS officers enforce the traffic
codes and cite violations using a Traffic
Ticket and Complaint. Citation forms
may differ slightly to accommodate the
varying court information.
Tribal or DPS officers enforce the traffic
codes and cite violations using a Traffic
Ticket and Complaint. Citation forms
may differ slightly to accommodate the
varying court information.
2 7
Table 7 continued
Traffic Records Availability
EMS Data Overview EMS Data Findings
The tribes, using PL 93- 638, may contract
from IHS to administer the EMS, or the
IHS may perform the services. Tribal fire
departments may also carry out
emergency responses to MVCs on tribal
lands. The IHS, or the tribal EMS and/ or
fire department, collect medical and
transport information pertinent to the
patient( s).
Depending on the situation, EMS may
have gathered data on seat belt usage
and impaired driving. Most of the data
has been filed within a tribal EMS, fire
department, or IHS.
However, to process reimbursements,
information specific to billing may be
shared outside of the tribal EMS, fire
department or IHS.
Through the enactment of SAFETEA- LU,
Congress mandated NHTSA to determine
model data elements that would be useful
in the observation and analysis of traffic
safety. One set of data elements
promoted by NHTSA is the National
Emergency Medical Services Information
System ( NEMSIS). NEMSIS was
developed in 2001 by the National
Association of State EMS Officials to
respond to the need for uniform and
consistent EMS data. NHTSA requires
through its data improvement grants that
states, including the " Indian State"
comprised of 562 federally recognized
tribes, adopt and use NEMSIS as soon as
Two tribal EMS programs completed the
Traffic Records Checklist. The IHS EMS,
serving the third tribe, did not participate.
Approximately 50 percent of the NEMSIS
data elements have been on file with
each of the two tribal programs. One
tribe manually maintains the data.
3.1.6 Gather and Analyze Available Data
The compilation and analyses of available data were crucial to identify the traffic safety
problems impacting the three tribes. The research team committed a significant portion
of the project time to identify the methods used to collect and analyze traffic records.
Several meetings were convened with ADOT and the BIA to learn the crash, traffic, and
roadway data collection procedures.
2 8
No comprehensive reference specific to tribes exists that explains the processes for traffic
records collection, and analyses. To decipher how data have been collected and analyzed
for tribes, ITCA gathered related data references and participated in the following
national and state data forums:
• AZ Governor's Traffic Safety Advisory Council
• AZ Traffic Records Coordinating Committee
• ADOT Data User Group
• ADHS Injury Surveillance Advisory Council
• Tribal Traffic Safety Coalition ( AZ)
• Transportation Research Board, Native American Issues, Safety Sub- committee
• Crash Outcome Data Evaluation Systems Board ( AZ)
• Traffic Records Forum ( National)
• National Tribal Transportation Conferences
• IHS Injury Prevention Level I Course
The project planning process for each tribe was initiated by conducting three preliminary
analyses of crash records. The research team was informed that the majority of tribes in
AZ, including the three participating tribes, have contracted with the BIA law enforce-ment
to administer their own PDs. Therefore, the tribal PDs have been responsible for
responding and documenting the majority of crashes occurring on tribal lands. Partial
crash data elements have been captured in the three police data systems. Each tribal PD
has determined which data elements from the ATAR have been included in their
automated crash files. The ATARs have been archived in manual files within each PD.
The research team relied on two methods to complete the preliminary crash analyses and
the identification of the high crash locations. One method involved compiling tribal
crash and EMS data and supplementing it with crash data on file with ADOT. The
second method utilized only the crash data supplied by ADOT. The first method was
applied with the Hualapai Tribe and the second method was employed to assist both the
Gila River Indian Community and the Tohono O'odham Nation.
Data Collection
Gila River Indian Community
There was a two- part approach with the Gila River Indian Community. First, staff from
the transportation, police, and EMS departments and the Health Authority were consulted
to understand the departmental traffic records collection processes. Officers from the PD
and the DPS have shared the responsibility for the crash investigations based on the own-ership
of the roadway and whether a Gila River Indian Community citizen was involved.
Both tribal and state law enforcement agencies have submitted ATARs to ADOT, so part
two of the process involved requesting ADOT to forward crash data for January 1991
through August 2005. These reports were electronically downloaded from the ALISS
database into MS Access ® files and emailed to the research team. The ADOT files
contained information for 2,675 MVCs.
2 9
ADOT sorted the crash reports by the National Crime Information Center ( NCIC)
number that identified the responding PD and the corresponding jurisdiction. For the
Gila River Indian Community, the NCIC numbers are 1189 for tribal police responding to
crashes occurring in Pinal County and 0764 for tribal police responding to crashes
occurring in Maricopa County. The NCIC for the DPS is 0799.
The crash data included all the data elements from the ATAR, except personal identifiers
and the narrative sections. ADOT also provided the research team with definition tables
containing the text versions of the coded information for certain elements. The research
team merged the MS Access ® files, using the microfilm number as the common
identifier, into one crash database.
Hualapai Tribe
The data compilation process for the Hualapai Tribe involved working with the EMS, the
PD, and ADOT. The EMS Director identified and manually compiled response informa-tion
from the 2000 through 2003 EMS run sheets and sorted them by year and location.
The categories included: 1) Run number, 2) Transported, 3) Milepost number, 4) Time,
5) Date, 6) Involvement of alcohol or drugs 7) Seatbelt usage, 8) Type of injury; 9) Tribal
resident involvement; 10) Responding agency; and 11) Type of crash. The ten available
spreadsheets provided the research team with baseline information about the number and
location of the MVCs occurring on the Hualapai Reservation for the last several years.
Since the Hualapai Reservation is an isolated area, 10 to 15 years of crash data, instead of
three to five years of data, were compiled. The crash data have been filed in six
locations: 1) BIA computer hard drive, which had been removed off premises, 2) ADOT
Kingman District Office, 3) ADOT Traffic Records Section, 4) Tribal police data system,
5) Tribal police filing cabinets, and 6) Tribal police storage boxes.
ADOT was requested to provide specific information from all reported ATARs
completed by the BIA and Hualapai Tribal Police back to 1991. Data for the 126 MVCs
from April 1991 through July 2002 were supplied by ADOT. Three MS Excel ®
spreadsheets, sorted by NCIC numbers, contained seven categories: 1) Location, 2)
Milepost number, 3) Distance, 4) Date and time, 5) Report number, 6) First harmful
event, and 7) Manner of collision. The three spreadsheets were merged into a MS
Access ® database and the duplicate reports were deleted. Three reports were
subsequently found not to be associated with the Hualapai Tribe.
During the sorting process, several high crash locations emerged. The police chief
relayed that local street names also referenced the IRR route numbers, i. e. Buck and Doe
is IRR Route 1. To understand the roadway system on the Hualapai Reservation, a copy
of the IRR Inventory Update and the Hualapai Long Range Transportation Plan were
requested from the Public Works Director. Using these references, the local street names
were converted to standardized IRR route numbers. Given that ADOT had already
established six- digit location names for the BIA routes, the IRR route numbers were
modified to six digits, i. e. Buck and Doe ( IRR Route 1) became BIA001.
3 0
In addition to using ALISS, the research team sorted through the August 2002 to
September 2005 police archives to locate both ATARs and Incident Reports related to
MVCs. An additional 157 reports were retrieved. Due to past computer malfunctions, no
historic data from the BIA Law Enforcement MVC files were available, except the
ATARs previously shared with ADOT.
The additional 157 reports were input into MS Access ® and the number of database fields
was expanded from seven to 51 to include additional information from these reports. The
majority of the additional information was derived from the first and second pages of the
ATAR and the narratives/ summaries of the Incident Reports. Examples of additional
information were road surface type, weather conditions, vehicle condition, direction, and
vision obstruction.
Once the categories for the 157 reports were increased, information for the original 126
ADOT reports were also expanded, so all records had the same information. 72 data sets
provided by ADOT were transferred into MS Access ® . ADOT also supplied the
definition tables.
The research team created MS Access ® queries and established linkages between ADOT
and ITCA data tables to create an overall table of 280 MVC records. Due to ADOT
coding procedures, the ADOT codes were converted to text by querying and merging a
majority of fields in the ALISS definition tables. In order to analyze the data and the
trends, the research team exported the data from MS Access ® back into MS Excel ® , to
run and sort specific reports.
Although a total of 280 records were compiled, many records were not complete,
especially those involving the Incident Reports. All of the 157 tribal reports were
reviewed a second time to extract additional information about the crash environment,
seatbelt usage, and the number of injuries and fatalities. The additional information was
input into MS Access ® and the MS Excel ® reports were run a second time to sort the
The research team met with the police chief three times during the compilation process.
The first meeting involved a review of the ADOT data acquisition and obtaining access to
the police records. The second meeting was scheduled to review the data compilation
process, to provide a copy of the original MS Access ® database, and to explain the
research team's recommendations for improving the collection and management of the
Hualapai Police crash records. Preliminary findings were provided at the third meeting.
Tohono O'odham Nation
The research team had been apprised, during the development of the Tribal Traffic Safety
Model and Guidelines, that the IHS OEH had assisted the PD to establish a MS Access ®
database to capture certain data elements from the ATAR. The police chief confirmed
the PD was still utilizing MS Access ® . The majority of crashes were documented by the
PD. The Tohono O'odham Nation has three land bases within two counties. The NCIC
3 1
numbers are 1089 for tribal police responding to crashes on the Tohono O'odham
Reservation, Pima County; 1164 for tribal police responding to crashes on the San Xavier
Reservation, Pima County; and 0763 for tribal police responding to crashes on tribal land
in Gila Bend, Maricopa County.
Based on this information, ADOT was requested to furnish crash data for January 1991
through August 2005. Consequently, 2,464 MVC reports were transferred from the
ALISS tables into MS Access ® .
Data Analyses
Two approaches and varied software were employed to analyze the crash data. MS
Access ® and Excel ® software were used to organize and analyze the crash data for the
Hualapai Tribe and the statistical analysis software ( SAS) helped to execute the analyses
for the Gila River Indian Community and the Tohono O'odham Nation.
Hualapai Tribe
Both MS Access ® and Excel ® were used to conduct the preliminary crash analysis. The
analysis identified system- wide, injury and fatality, and location/ route specific issues.
Data from many of the 280 available crash reports were incomplete. Twenty- three of the
reports contained only the route and time, and for several other reports, only route,
location, and time existed. However, the available data did provide valuable insight
regarding crashes on the Hualapai Indian Reservation.
Gila River Indian Community and the Tohono O'odham Nation
The ALISS data tables were imported into SAS Version 8.0. Variables were recoded into
text responses, based on the provided definition tables, in order to ease the analyses.
Multiple data tables were merged by microfilm number, the unique identifier, into one
master table. Data were sorted for three types of analyses: overall system- wide issues,
injury and fatality, and location/ route specific issues.
Since both of these tribes had a significant number of crash data on file with ADOT, the
police Incident Reports were not examined to detect additional crash reports. The
research team noted the standardization of location names would be helpful for
subsequent location analyses, but decided against reconciling the location names for two
reasons: 1) the IRR inventories for each of these tribes were not complete and 2) ADOT
had not begun to upgrade the ALISS database.
3.1.7 Using Data to Assess the Magnitude of the Problem Associated with Each
Tribal Highway Safety Issue
The MVC reports provided the most comprehensive set of data regarding safety
performance of the roadway, vehicle, driver and other persons involved in the crashes.
Consequently, crash data were used to identify, assess the magnitude and assist the tribes
in prioritizing traffic safety issues.
3 2
Assessment of MVC Data
A preliminary crash analysis was prepared for each tribe, based on the ATAR data filed
with ADOT by the tribal police, BIA and/ or the DPS, and, in the case of the Hualapai
Tribe, the data also included the information from Incident Reports. Three analyses were
prepared and the findings summarized in separate MS PowerPoint ® presentations for
each team. The analyses confirmed many of the initial traffic safety issues in Table 6, but
other traffic safety issues also surfaced. Table 8 summarizes the additional issues from
the preliminary crash analyses.
Table 8
Traffic Safety Issue Findings
from the MVC Reports for the Three Participating Tribes
Safety Issue Category Traffic Safety Issue Findings
Data availability Much of the MVC crash data
were incomplete or missing.
CPS Child passenger
Infants and young children
appear to be the least protected
in a motor vehicle.
DUI of alcohol or drugs.
More than 10 % of drivers in all
MVCs and as many as 35 % of
Impaired the fatal MVCs were DUI.
Driving Driver fatigue or
Driver fatigue or drowsiness
may have been a factor in as
many as 6% of MVCs.
Location distribution of
MVCs, injuries, and
There were concentrations of
MVCs, injuries, and fatalities by
road and location on road.
High- crash locations were
primarily on SR or intersections
involving an IRR route with a
Run- off- the- road MVCs Over 30% of all MVCs involved
run- off- the- road.
Effects of light conditions
For two tribes about 60% of the
fatal MVCs occurred at night,
dawn, or dusk.
Hour of day
The hour of day for the peak
number of MVCs varied by
Training Not applicable Not applicable
& Bicycles
Pedestrian and cyclist
involvement in MVCs.
A significant number of injury
and fatal crashes involved
EMS Not applicable Not applicable
Citations Speeding About 20% of MVCs involved
3 3
Prioritization of Highway Safety Issues
Each team prioritized the tribal traffic safety issues using information from the
brainstorming session combined with the findings contained in the preliminary crash
analyses. The outcomes for each tribe are described in the following section.
Gila River Indian Community
The planning team chose the development of an integrated data management system with
initial focus on crash data completed by the PD. The team considered reliable safety data
essential for the effective operation of many of its departments. The implementation of a
community- wide GIS/ computer- aided drafting ( CAD) system will support the
availability of traffic records for multiple departmental uses. When the initial project is
implemented, support for building an ongoing traffic safety capacity will be developed.
Hualapai Tribe
The planning team picked four traffic safety- related projects in the following order of
priority: 1) Occupant protection; 2) Speeding; 3) Impaired driving, and 4) Safety
improvement of one intersection. Although the initial project centered on increasing
occupant protection, associated fieldwork has incorporated actions to address speeding
and impaired driving.
Tohono O'odham Nation
Two traffic safety priorities were identified: 1) Primary seat belt legislation and 2) Safety
improvement of one intersection. The Tohono O'odham Nation subsequently passed
primary seat belt legislation and then focused on the intersection improvement.
3.1.8 Potential Safety Funding Sources to Address Identified Traffic Safety Issues
The purpose of this section is to identify potential funding sources that could be available
to address the traffic safety issues. Table 9 is a list of the programs that are organized, as
they appeared in the Tribal Traffic Safety Funding Guide.[ 22]
The matrix in Table 10 correlates each safety issue listed in Table 6 with the potential
funding sources numbered in Table 9. Multiple potential funding sources were listed for
most issues, which demonstrate the breadth of programs available to fund specific types
of traffic safety projects. The viability of each listed source will depend on the specific
project and how it relates to the objectives for the funding source. Tribal funding was not
shown as a source, but was an option.
3 4
Table 9
Potential Traffic Safety Funding Sources for Tribal Projects
Program Number[ 22] Program Name[ 22]
1 Community Facilities Grant
2 Rural Community Development
3 Alcohol Abuse Reduction
4 Safe Schools/ Healthy Students
5 Social & Economic Development Strategies
6 Injury Prevention Program
7 Healthy Native Communities Fellowship
8 Tribal Management Grant Program
9 Family and Juvenile Treatment Drug Courts
10 Indian Reservation Roads Formula Program
11 Indian Reservation Roads High Priority Projects Program
12 Indian Highway Safety Program
13 Tribal Resources Grant Program
14 Tribal Courts Assistance Program
15 Indian Alcohol and Substance Abuse Program
16 Correctional Facilities on Tribal Lands
17 Drug Court Discretionary Grants
18 Edward Byrne Memorial Justice Assistance Grants
19 National Criminal History Improvement Program
20 Mental Health Courts Program
21 Tribal Youth Program
22 Highway Safety Improvement Program
23 Safe Routes to School
24 Highway- Rail Grade Crossing
25 Surface Transportation Program
26 Highway Bridge Replacement & Rehabilitation
27 Equity Bonus
28 Transportation Enhancement
29 State & Community Highway Safety Grants
30 Seat Belt Use Programs
31 Impaired Driving Grants
32 State Highway Program
33 AAA Foundation for Traffic Safety
34 Americorps Indian Tribes Grants
35 AT& T Education & Civic & Community Service Grants
36 Ford Foundation Grants & Loans
37 W. K. Kellogg Foundation Grants
38 Lumina Foundation for Education Grants
39 Robert Wood Johnson Health & Healthcare Grants
40 Indian Reservation Roads Flexible Financing
41 Highway Expansion & Extension Loans
3 5
Table 10
Potential Traffic Safety Funding Sources for Each Safety Issue or Action
Safety Issue
Category Safety Issue or Action Potential Funding
Programs[ 22]
AZ DPS data retrieval. 1, 2, 5, 6, 8, 10, 12, 22, 25, 27,
29, 40
Data essential for assessing and
prioritizing traffic safety issues.
1, 2, 3, 5, 6, 8, 9, 10, 12, 15,
17, 18, 19, 20, 21, 22, 25, 27,
29. 30, 31, 33, 39, 40
Having a MIS staff person to assist in data
storage and analysis.
2, 5, 8, 10, 12, 13, 14, 15, 17,
18, 19, 20, 25, 27, 29, 30, 40
Follow- up traffic investigations conducted
off tribal lands was time consuming and
resource intensive.
10, 12, 13, 15, 18, 30, 31, 40
OEM responds to major traffic incidents
and tracks costs associated with response.
It performs hazard analysis associated with
transport of hazardous materials. Not all
information is put together in a database.
Both MS Access ® and paper databases are
used. A central GIS system would be
1, 2, 5, 6, 8, 10, 12, 22, 25, 27,
The OSHA collects data on sites that have
a health assessment. ArcView and GIS is
used to track sites. There is work
underway to establish a state database.
The department tracks responses to
incidents. Most records were kept
1, 2, 5, 6, 8, 10, 12, 22, 25, 27,
There are some limited GIS capabilities in
the Land Use Department.
1, 2, 3, 5, 6, 8, 9, 10, 12, 15,
17, 18, 19, 20, 21, 22, 25, 27,
29. 30, 31, 33, 39, 40
Health has RPMS data, but is not aware if
anyone is extracting information. The
Injury Control Group will be looking into the
automation of data and reporting
automatically for injuries.
5, 6, 8, 12, 29, 30, 33, 35, 37,
Increase education and usage of CPS
4, 5, 6, 7, 8, 12, 13, 29, 30, 33,
32, 35, 36, 37, 38, 39
Safety belt and seat usage survey.
CPS Children are not restrained in cars.
The tribe has no laws to enforce child
passenger restraint. One concern is how
much to fine.
5, 6, 8, 12, 29, 30, 33, 36, 37,
3 6
Table 10 continued
Potential Traffic Safety Funding Sources for Each Safety Issue or Action
Safety Issue
Category Safety Issue or Action Potential Funding Programs[ 22]
Passengers in back of vehicles.
Increased education and usage of restraint
systems are needed.
Tribal members need to be educated on
the use of seat belts and child restraints
4, 5, 6, 7, 8, 12, 13, 29, 30, 33,
32, 35, 36, 37, 38, 39
A renewed effort should be made to obtain
a primary seat belt law.
There has been discussion of the tribe
updating its criminal code and adopting
entirely the AZ traffic laws.
The tribe has no laws to enforce occupant
restraint. One concern is how much to
The tribe is considering adopting AZ codes
for seat restraint.
5, 6, 8, 12, 29, 30, 33, 36, 37, 39
DUI of alcohol or drugs, including
underage drinking, is a problem.
3, 4, 5, 6, 7, 8, 12, 13, 15, 17, 18,
20, 21, 29, 31, 33, 34, 35, 36, 37,
The PD does not have sufficient signage
for sobriety checkpoints. 1,6, 12, 13, 29, 31
Intoxilizers are needed. 1, 6, 12, 13, 18, 29, 31
The PD does not have a phlebotomist to
administer blood tests. 6, 12, 13, 18, 29, 31
The PD needs to improve its capacity to
test for alcohol and drugs. 1, 6, 12, 13, 18, 29, 31
Traffic enforcement needs to be increased. 1, 6, 12, 13, 18, 29, 31
Speed is probably a problem. 6, 12, 13, 29, 31
Impaired driving is an issue facing the PD. 3, 4, 6, 7, 9, 12, 13, 17, 18, 21,
29, 31, 33, 34, 39
Rollover crashes are largely due to run- off-the-
road crashes
10, 11, 12, 22, 25, 26, 27, 29, 32,
40, 41
Many crashes occur on minor roads. 10, 11, 12, 22, 26, 27, 40
Intersection- related crashes are a problem. 10, 11, 12, 22, 24, 25, 27, 29, 32,
40, 41
There have been a lot of reports of elk and
livestock crashes. 10, 11, 12, 22, 25, 27, 29, 32, 40
There were many specific roads and road
locations identified with safety issues. In
many cases specific reasons for the issue
were also identified.
10, 11, 12, 22, 23, 24, 25, 26, 27,
29, 32, 40, 41
Many vehicles park along side the roads
for a variety of reasons, creating a hazard. 10, 12, 22, 27, 28, 29, 32
Trucks and other vehicles bypassing state
highways for closures or other reasons
create a safety issue.
10, 12, 22, 24, 26, 27, 29, 32
3 7
Table 10 continued
Potential Traffic Safety Funding Sources for Each Safety Issue or Action
Safety Issue
Category Safety Issue or Action Potential Funding Programs[ 22]
Time of day does not seem to be a
significant factor in crash patterns.
10, 11, 12, 22, 23, 24, 25, 26, 27,
29, 32, 40, 41
Fence cutting for access leads to MVCs. 10, 11, 12, 22, 25, 27, 29, 32, 40
Transportation of hazardous materials is an
issue concerning the OEM. 5, 12, 22, 24, 25, 26, 27, 29, 32
Road safety, rain, dirt roads, signs, lighting,
community growth resulting in increased
traffic that the roads are not able to handle.
10, 11, 12, 22, 23, 24, 25, 26, 27,
28, 29, 32, 40, 41
Traffic management around incidents
related to homeland security and
emergency management is a concern.
5, 12, 13, 22, 24, 25, 26, 27, 29,
There is a safety problem on a high volume
road with traffic speeding and a mix of
automobiles, semis/ trucks and bicyclists.
1, 4, 10, 11, 12, 22, 24, 23, 25, 26,
27, 28, 29, 32, 40, 41
Trash along the roadways is a safety issue. 10, 32
Growth and development will lead to
increased traffic and safety problems and
the need to expand road capacity.
10, 11, 12, 22, 23, 24, 25, 26, 27,
28, 29, 32, 40, 41
IHS can provide CPS education through its
SNAP course. 6, 7, 12, 29, 30, 33, 34
The IHS Clinic offers prenatal training that
could incorporate traffic safety training.
3, 6, 7, 12, 18, 21, 29, 30, 31, 33,
Train tribal government employees on traffic
safety, which could reduce insurance costs
for the tribe.
6, 12, 13, 21, 29, 30
The tribe does not have an employee traffic
safety handbook. 6, 12, 13, 29, 30
The PD has been able to reduce the
insurance premiums for its motor vehicles
by requiring drivers' education for its
6, 12, 13, 29, 30
Training/ education for the community is
2, 3, 4, 6, 7, 9, 12, 13, 17, 18, 21,
23, 27, 28, 29, 30, 31, 33, 34, 35,
37, 39
The Director of the AZ GOHS should make
presentations to the tribal community. 29
Pedestrian crashes along specific roadways
and roadway locations are a problem.
1, 4, 6, 10, 11, 12, 22, 23, 25, 26,
27, 28, 29, 32, 40, 41
Bicyclists along high volume roadways are a
1, 4, 6, 10, 11, 12, 22, 23, 25, 26,
27, 28, 29, 32, 40, 41
Bicycles Pedestrians walking along and across
roadways to specific destinations are a
1, 4, 6, 10, 11, 12, 22, 23, 25, 26,
27, 28, 29, 32, 40, 41
3 8
Table 10 continued
Potential Traffic Safety Funding Sources for Each Safety Issue or Action
Safety Issue
Category Safety Issue or Action Potential Funding Programs[ 22]
EMS response is delayed due to an
inaccurate mapping and addressing
system for the reservation.
1, 5, 10, 12, 22, 29,
Street name signs are needed. 1, 10, 12, 22, 29
911 calls are routed to a community
outside the Reservation, where there is a
delay in getting the information back to
Tribal first responders.
5, 12, 29
IHS can help with the 911 calling issue. 6, 12, 29
EMS owns an extrication tool, but the tool
is in a BIA extrication vehicle, which is
stored at a BIA facility resulting in delayed
1, 12, 13, 29
Transportation of hazardous materials is a
problem. 5, 6, 10, 12, 13, 29, 32
A first offenders program is needed that
will provide education and training options
in lieu of penalties.
3, 4, 6, 7, 9, 12, 13, 14, 15, 17,
18, 21, 29, 30, 31
More detention facilities are needed. 1, 2, 16
The capacity of the BIA- operated detention
system is inadequate. 1, 2, 16
Redirecting court citation money to traffic
safety should be a consideration. 5, 15, 18
Speeding, especially with non- members
driving through the community. 6, 7, 12, 13, 29
The possibility of applying for IHS tribal
capacity funds would allow hiring a full
time injury prevention specialist for the
6, 8, 9, 12, 29, 30, 37, 39
Other potential funding sources for traffic
safety include fuel tax and vehicle
licensing agreements with the state.
Traffic safety relates to two of three Health
and Human Services departmental
objectives – injury and alcohol
3, 4, 6, 7, 8, 9, 12, 15, 17, 18, 21,
29, 30, 37, 39
The planning team could be augmented by
organizations with an interest in or
responsibility for traffic safety, such as
schools, MADD, Explorers, tribal court,
Youth Council, and ADOT.
No cost
3 9
3.1.9 Summary of Coordinating Team Activities for Determining if the Tribal
Government has a Highway Safety Problem Modified the Matrix
The teams followed distinct processes to address infrastructure needs and to consider
funding sources to carry out the highest priority projects. Table 11 summarizes the
actions for each tribe.
Table 11
Team Activities Regarding Safety Issues, Infrastructure, and Funding
Gila River Indian
Tohono O'odham
1. The planning
team brainstormed
traffic safety issues.
1. The planning team
brainstormed traffic
safety issues.
1. The planning team
brainstormed traffic
safety issues.
2. The research
team performed a
preliminary crash
2. The research team
performed a
preliminary crash
2. The research team
performed a preliminary
crash analysis.
3. The planning
team selected a
data management
system project.
3. The planning team
selected and prioritized
four issues.
3. The planner
recommended an
intersection improvement
4. GIS/ CAD project
coincided with a
data project
previously approved
by the Tribal
4. The planning team
selected an occupant
protection project.
4. The tribal chairwoman
approved the intersection
improvement project.
5. Tribal Council
approved the project.
5. A RSA team identified
the safety issues for the
selected intersection.
1. The planning
team will assist to
carry out the scope
of work identified in
the request for
proposal ( RFP)
once the Tribal
Council approves
1. The team leader
planned detailed tasks
to implement the
occupant protection
project, including the
identification of the
infrastructure needs,
project training and
establishing a traffic
safety officer position.
1. The implementation
team identified the need
for an effective traffic
safety communications
Needs 2. The planning
team will determine
the infrastructure
needs after the
Tribal Council
approves the
funding for the
system acquisition.
2. ADOT and BIA as
owners of the
intersecting roads
maintained the technical
infrastructure capacity.
4 0
Table 11 continued
Team Activities Regarding Safety Issues, Infrastructure and Funding
Gila River Indian
Tohono O'odham
1. The planning
team will provide
funding support in
data collection, data
analyst services,
training, or some
other activity
associated with the
installation of the
software package.
1. The research
team developed a
list of potential
funding sources for
each of the
identified traffic
safety issues.
1. The
team identified
ADOT and BIA
Papago Agency as
potential funding
sources for the low
cost improvements.
2. The planning
team will determine
the sources of
funding support
after Tribal Council
approval of system
acquisition funding.
2. The IHS, GOHS
and ADHS were
considered as
training resources,
such as CPS, SNAP
and seat belt
2. ADOT and Pima
Association of
( PAG) were
identified as
sources for scoping
3. The Tribal PD
was identified to
fund the start- up
3. The three
jurisdictions will
determine the
sources of funding
for the intersection
project after the
Scope of Work is
4. The GOHS and
BIAHSO were
considered means
to fund the traffic
safety officer
Before proceeding to develop the project plans, the teams were encouraged to review fund-ing
sources. Each team reviewed the funding requirements and selected appropriate sources.
3.2.1 Investigate Potential Funding
The activity was intended to assist each team to identify suitable funding sources for its
safety project by 1) Comparing the eligible uses of the potential funding to the goal( s) of
the tribal safety project; and 2) Studying the requirements, the levels and availability of
4 1
program funds before applying. CDs containing the Tribal Traffic Safety Funding
Guide[ 23] were distributed to each planning team member and, in the case of the Tohono
O'odham Nation, the implementation team.
Gila River Indian Community
The planning team decided to investigate supplemental funding sources after the Tribal
appropriations process was complete. However, the planning team expressed apprehension
about applying to the BIAHSO or the AZ GOHS for federal data improvement funds.
Although funding was necessary, the team was concerned that the tribe would be mandated
to share with ADOT all crash data, rather than partial data that excludes personal identi-fiers.
Additionally, impacts on tourism and increased insurance rates for tribal citizens were
Hualapai Tribe
The planning team reviewed the AZ GOHS FY2006 State and Community Highway Safety
Grant application and submittal guidelines, and agreed to compile an application for intoxi-lizers
and signage. During the team discussion of tasks, the IHS staff organized the tasks
and schedule into a work plan to facilitate the completion of the application. However, the
tasks were too numerous for the tribe to complete within a month, so an application was not
submitted. A year later, the police chief identified the BIAHSO FY2007 State and Commu-nity
Highway Safety Grant as a funding source for a traffic safety officer to implement the
occupant protection project.
Tohono O'odham Nation
RSA Program funds were the means to secure a safety inspection and to identify low and
high cost roadway improvements for the intersection of SR 86 and IRR Route 15. The
Tohono O'odham Nation, ADOT and the BIA addressed funding to make the actual
improvements after the completion of the RSA.
3.2.2 Determine Tribal Actions Necessary to Obtain Safety Funds
Once the teams had weighed the cost of meeting the program requirements against the
potential funding benefits and applied for funds, the team leaders followed tribal procedures
to acquire advance approval. The police chief for the Hualapai Tribe, the transportation
planner for the Gila River Indian Community, and the NRC chairperson and a tribal
attorney for the Tohono O'odham Nation advised the research team on the tribal protocols.
Each tribe had different protocols for approving projects and funding.
Gila River Indian Community
The tribal departments had previously acquired Tribal Council approval for a data system.
However, at the time, the Tribal Council did not appropriate tribal funds to pay for the
system. Since the approval of the system was partially completed, the staff discussed
preparing an RFP for submittal to the Capital Budgets Committee ( CBC). The CBC's
4 2
responsibilities include screening proposals and recommending RFPs to the Tribal Council.
The Tribal Council authorizes tribal expenditures and funding applications.
Hualapai Tribe
During a departmental report to the Tribal Council, the police chief relayed project
information and sought support to apply for supplemental funding to initiate the occupant
protection activities. The BIAHSO was identified as a potential funding source.
Tohono O'odham Nation
The RSA process required the Tohono O'odham Nation, as the requesting jurisdiction,
and the road owners to prepare a response to the RSA recommendations. A preliminary
step to drafting a response was to determine the rights of way ( ROW) in order to resolve
the jurisdictional responsibilities. For this project, the land and road owners agreed to a
joint response.
3.2.3 Prepare Funding Recommendations
Gila River Indian Community
The planning team participated with the MIS Department to interview prospective
software vendors of traffic data collection and management ( GIS/ CAD) systems. Upon
determining the appropriate system, the MIS Department completed the RFP, using the
departmental information. Each participating tribal department had provided the MIS
department director with a data summary for its existing databases, justifications of
needs, and statistics related to the frequency and nature of medical responses to MVCs on
the Gila River Indian Reservation. The RFP was submitted to the CBC.
Hualapai Tribe
The police chief solicited aid from the planner to prepare a project justification and grant
application for a traffic safety officer position. The planner utilized the preliminary crash
analysis to document the tribe's need.
Tohono O'odham Nation
The RSA team recommended low- cost improvements for increasing visibility of the
intersection and sight distance, keeping cattle off the roadway, and decreasing speeding.
However, major investments were also pointed out for improving narrow shoulders,
pavement drop- offs, and increasing use of turn lanes and pedestrian and bicycle facilities.
The three jurisdictions all assumed responsibility for portions of the low- cost
For example, ADOT agreed to placement of the streetlight, provided the Tohono
O'odham Nation would furnish the electricity. The NRC initiated discussions with the
Tohono O'odham Utility Authority regarding the costs to maintain power to the proposed
streetlight. The request will require the approval of the NRC and Legislative Council.
4 3
The BIA Papago Agency agreed to inspect and repair the fencing. However, the current
level of maintenance funding for the agency was insufficient to pay for the fencing
improvements identified in the RSA. The agency requested authority from the NRC to
use up to 25 percent of the tribal FY2007 IRR construction allocation to offset the
expenditures for the IRR Route 15 improvements and other road maintenance. If
endorsed by the NRC, the Tribal Legislative Council will be required to modify the
Tohono O'odham Nation Transportation Improvement Program ( TIP) for inclusion into
the BIA IRR TIP. To address the need for signage and pavement markers on IRR Route
15, the BIA WRO DOT will expand a FY2008 IRR construction project.
The intersection reconstruction requirements were addressed in a scoping study request
initially directed to ADOT and then PAG, the metropolitan planning organization ( MPO)
for Pima County. ADOT had denied payment, so the ADOT Tucson District approached
the PAG to include the project scoping in their FY2008- 2013 TIP. The minimum
reconstruction cost is expected to be several million dollars.
Future funding for the reconstruction could come from sources such as the ADOT
Construction Program, the federally funded HSIP, Tohono O'odham Nation's IRR
allocation, special Congressional allocations, and innovative financing. Tribal and
ADOT action will be required to respond to the scoping study and to determine how to
fund the intersection reconstruction.
3.2.4 Decisions on Tribal Coordinating Team Recommendations
Official actions, either by the tribal leaders or the Tribal Councils, finalized the individual
team recommendations. Following are the summaries of decisions for each tribe.
Gila River Indian Community
The CBC endorsed the need to expend tribal funds to purchase and implement the
management system. The CBC forwarded their recommendation to the Tribal Council
for final approval. Approval is pending.
Hualapai Tribe
The chairman approved the grant application and the application was submitted to the
BIAHSO for consideration. The tribe was awarded BIA funds to hire a traffic safety
officer. The officer has been employed to implement the occupant protection activities.
Tohono O'odham Nation
The tribe, BIA, and ADOT jointly agreed to the recommendations from the RSA team.
The PAG Council approved the TIP, which included a project to scope the intersection.
Reconstruction funding decisions will conclude after the scoping study is complete.
4 4
To improve highway safety, tribes may decide to commit to ongoing THSIPs or short-term
commitments through the implementation of single safety projects. The primary
differences in planning THSIPs or single projects are the extent of integration with other
tribal programs and the need for prioritizing multiple safety projects. For the BTTSC
project, each planning team implemented an individual project. However, two of the
three teams indicated they planned to pursue an on- going traffic safety program.
3.3.1 Prepare Scope- of- work for Development of THSIP or Safety Project
Two of the teams developed detailed scopes of work for their traffic safety projects. The
third team scoped one aspect of the project. These scopes of work, which identified work
activities, responsible parties and timelines, were of substantial benefit in setting the
course and evaluating the progress of each project implementation.
3.3.2 Identify Tribal Traffic Safety Capacity Issues
Early in the project, capacity issues surfaced simultaneously to the identification of the
traffic safety issues. Table 12 cross- references the list of capacity issues with the five
capacity areas: 1) Decision making; 2) Data collection and storage; 3) Equipment and
Software; 4) Project prioritization; and 5) Project development, implementation, and
The findings on the traffic safety issues and capacity analysis relate to the current traffic
safety capacity of the three tribes. The associated analysis is not a criticism of the tribes.
To the contrary, tribes do not have the capacity in large part due to the following reasons.
1. Traffic safety on tribal lands has not been a major thrust of federal and state
policies and programs in the past.
2. Federal assistance has not focused on building tribal capacity, but rather on
retaining the expertise with the federal agency or turning program responsibilities
over to tribes without sufficient structure and resources to build capacity.
3. Federal and state programs are not well coordinated, resulting in fragmented
approaches to complex traffic safety issues.
An analysis of the capacity- related issues and capacity topics leads to the following
4 5
Decision- making
The tribes did not have decision- making structures that efficiently supported the
development of a traffic safety program. Components of a traffic safety program were
dispersed among tribal departments, leading to fragmented decision- making. Some
traffic safety program components were missing entirely. For the BTTSC project, ad hoc
traffic safety planning, and implementation teams were specifically set up by all three
tribes to initiate a project. In some instances, tribal laws have not provided a basis for
traffic safety program decision- making.
Data Collection and Storage
There are no integrated traffic safety databases. The traffic safety program components
were dispersed among tribal departments and the majority of data were not tribally
collected. Traffic safety data were not generally shared among all potential users. The
mix of manual and automated databases has resulted in inefficient usage of and
inaccessibility to the data.
Equipment and Software
Adequate equipment was not available for those departments collecting traffic records.
This was particularly evident where staff manually collected data in the field and
reentered the same data in office computer systems. Different tribal departments have
used varied software for storing related data, making data integration and sharing
Project Prioritization
A comprehensive traffic safety program has generally not been established for each of the
tribes. Some elements of a traffic safety program, such as occupant protection, and
reducing impaired driving, speeding, and other violations, have been started and could be
Project Development, Implementation and Evaluation
None of the tribes have staff assigned solely to a traffic safety program. Consequently,
the BTTSC project tasks were added work for the staff participants, and the tribal
capacity was very limited to the specific project development, implementation, and
Table 12
Tribal Traffic Safety Capacity Issues
Traffic Safety Capacity Areas
Traffic Safety Issue
Category Decision- Making Data Collection &
Equipment &
Implementation and
The data decision-making
had not been
A comprehensive
data collection plan
had not been
Automated field
data collection
equipment was
Data project
prioritization had
not been
Staffing resources
had been minimally
committed to data
collection and
responsibilities had
not been dispersed
Sufficient data had
not been maintained
in an automated
storage system.
Data collection and
storage software
systems had not
been integrated.
Data had not been
shared consistently.
Some of the
participating tribes
had traffic codes
pertaining to child
( endangerment)
passengers, but
resources did not
permit adequate
Usage data had not
being collected by
the tribes.
IHS may be
observational seat
belt studies for the
tribes, but these
studies had not
captured sufficient
child passenger data.
Routine seat belt
checkpoints to
examine proper use
of child restraint
systems would help.
Table 12 continued
Tribal Traffic Safety Capacity Issues
Traffic Safety Capacity Areas
Traffic Safety Issue
Category Decision- Making Data Collection &
Equipment &
Implementation and
Primary s
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