I. Road Accidents in Recent Years
Road accident casualties in Japan continued to increase every year as private motor vehicle use grew in popularity until 1970 when the number of people killed and injured stood at 16,765 and 981,096, respectively, the highest on record.
Because of the pressing social issues presented by traffic safety, the government formulated the Fundamental Traffic Safety Program in 1971 which is reviewed every five years as stipulated by the Traffic Safety Policies Law (Legislation 110 enacted in 1970). As a result of strong comprehensive drives on traffic safety measures right across the board under this program beginning with the installation of more traffic safety facilities, the number of traffic accident fatalities was kept down to 8,466 in 1979 and 8,760 in 1980, almost fully satisfying the objectives of the first two programs.
Subsequently, however, traffic accident fatalities began to increase slowly, exceeding 9,000 in 1982, 10,000 in 1988 and placed the objectives of the third, fourth and fifth programs out of reach.
1996 marked the commencement of the Sixth Fundamental Traffic Safety Program (fiscal 1996 - fiscal 2000). The objectives of this program are to sponsor more comprehensive traffic safety measures which respond more fully to the traffic accident situation, and to drive the number of fatalities each year to below 10,000 by 1997 and to below 9,000 by the year 2,000. However, the first stage objectives were met one year early in 1996 when the number fatalities fell below 10,000 for the first time in nine years (Fig.1).
The number of fatalities peaked in 1970 at 16.2 per 100,000 head of population and began to decrease in 1971 falling to 7.3 in 1979. That figure gradually rose and after 1988, moving in the 8 to 9 levels before falling back to the 7 range for the first time in 9 years in 1996 when it fell to 7.9. Mean while, the number of traffic accident fatalities per 10,000 motor vehicles and per 100 million motor vehicle kilometers fell steadily until 1975 and has continued its slight downward trend since then (Fig.2).
II. Road Accidents in 1996
1. Overview
There were 771,084 traffic accidents (hereafter, the term, traffic accidents shall only refer to accidents involving casualties) in 1996 in which 9,942 people were killed and 942,203 people were injured.
Although this was a substantial decrease in the number of fatalities over the previous year (737), the number of accidents was the highest on record for the fourth consecutive year (9,295 more than the previous year) and the number of injuries was up in the 900,000 range for the second consecutive year (19,529 more than the previous year). Consequently, the situation remains just as critical as ever.
2. Prominent Aspects of Traffic Fatalities
Traffic accident fatalities in all age groups and in all road user types declined in 1996 over the previous year with the exception of motor vehicle occupants 65 years of age and over and pedalcyclists 60 years of age and over . There was a dramatic decline in the number of fatalities in the 16 to 24 age group in particular as a result of the probationary period system for new license holders, the introduction of retraining in practical driving safety skills and other measures which emphasized driver education for younger drivers. Fatalities among motor vehicle occupants in general also decreased due to practical driver education,greater seatbelt use, improved vehicle safety and better driving environments.
| (1) | Fatalities by Age Group |
| Young people in the 16 to 24 age group (2,125) and senior citizens aged 65 and over (3,145) constituted a large proportion of accident fatalities in 1996. These two age groups accounted for 53.0% of all fatalities. There was a particularly substantial reduction over the previous year in the younger 16 to 24 a ge group (291) resulting in a continued decline for the sixth successive year. Fatalities among senior citizens over the age of 65 also declined (by 95) for the first time in 9 years but still constituted the majority of fatalities for the fourth consecutive year (Fig.3). |
| (2) | Fatalities by Road User Type |
| A look at the number of fatalities in 1996 indicates that motor vehicle occupants topped the list at 4,289. Although this was a major decline (261), it still accounted for more than 40% of fatalities among all road user types since 1990. Motorcycle rider and passenger fatalities also dropped sharply in 1995 and 1996, staying lower than pedalcyclist fatalities fell for the two consecutive years (Fig.4). |
| (3) | Fatalities by Road User Type and Age Group | ||||||||||||||
The following features are evident when viewing traffic accident fatalities
by road user type in 1996 broken down by age group.
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| (4) | Fatalities and Seat Belt Use |
| A look at seat belt use among motor vehicle occupant fatalities in
1996 reveals that 2,999 were not wearing seat belts, a dramatic improvement
(267) over the previous year. This was particularly evident in the 16
to 24 age group which saw a major improvement of 140 over the previous
year. In November 1986, it became mandatory for motor vehicle occupants in front seats to use seat belts on public roads. The number of fatalities involving seat belt users has remained static since 1987, whereas fatalities involving those not wearing seat belts had been increasing each year until 1994 when the numbers began to fall (Fig.7). According to a survey of seat belt use, the rate of usage, which had remained almost unchanged in recent years,showing upward trend since 1994 (Fig.8). |
Figure8 Changes in the Rate of Seat Belt Use
CHAPTER 2
Traffic Accidents Involving Senior Citizens and Viable Preventative Measures
With the rapid onset of an aging society, more senior citizens hold driving licenses, are active in industry and society and commute by a diverse range of means. Consequently, the incidence of traffic accidents involving senior citizens continues to rise and has led to a critical situation. In 1996, the number of fatalities among senior citizens 65 years of age or older was 3,145, less than the previous year. However, at 31.6% of all traffic accident fatalities, it is a remarkably high ratio and more than double the ratio of senior citizens to the overall population. When viewed by road user type, pedestrian fatalities over the age of 65 still make up more than 50% of the total and the yearly increases in senior citizen motor vehicle occupant fatalities are a reflection of the greater number of senior citizen drivers.
In view of this, the government has been stepping up traffic safety measures for senior citizens for some time. However, in 1996, the government implemented a powerful set of policies aimed at producing traffic safety measures for senior citizens as a priority policy under the Sixth Fundamental Traffic Safety Plan as provided for by the Traffic Safety Policies Law.
This chapter analyzes the factors and transitions in traffic accidents involving senior citizens, reviews measures which have been adopted to date to prevent traffic accidents involving senior citizens and sets out future policy directions.
I. Traffic Accidents Involving Senior Citizens
1. The Aging Society and Senior Citizen Activity in Transportation
| (1) | The Aging Population |
| In recent years the population of senior citizens in Japan 65 years of age and over has risen substantially and in 1996, it reached 19 million, 2.6 times that of 1970, and accounted for 15.1% of the overall population which stood at 125.87 million people. | |
| The 75 and over age group (referred to in this chapter as older senior citizens, while the 65-74 group is referred to as the younger senior citizens) withi n this particular group saw a marked increase, reaching 7.46 million in 1996, 3.3 times the 1970 figure, and accounting for 5.9% of the overall population. | |
| According to "Population Projections for Japan: 1996 - 2100" by the Ministry of Health and Welfare (January 1997), Japan's senior citizen population will reach 21.87 million by 2000 (17.2% of the overall population) and 33.34 million by 2020 (26.9%). |
| (2) | Senior Citizen Lifestyle Changes |
| Japanese lifestyles have been diversifying in recent years and the lifestyles of senior citizens have also been changing. In 1991 there were 3.85 million senior citizens 65 years of age or older in employment. This figure rose to 4. 48 million in 1996 (according to the "Labor Force Survey" by Management and Coordination Agency) leading us to believe that there has been a major increase in the number of senior citizens who leave their homes for work-related reasons. | |
| According to Management and Coordination Agency's "Survey on Senior Citizen Participation in the Community" (1993), the ratio of senior citizens 60 years of age and over who replied "I am currently active in the community" increased in 1993 to 42.3% from 36.4% in 1988. | |
| A further 64.3% responded with either "I want to participate" or "I would like to participate but circumstances prevent me" demonstrating a strong desire and interest by senior citizens in community participation. |
| (3) | Increased Mobility |
| With the growth in motor vehicle transport over recent years, the number of senior citizen license holders grew 1.7 times the 1991 figure (31.6 million) to 5.25 million in 1996. Although the ratio of license holders (to overall population in that age group) was a low 27.6% compared to the over 16 age group at 66.8%, when compared to the 20.3% of 1991, we can see that it has expanded 1.4 times. | |
| In a study of senior citizen license holders based on gender and age group, th e ratio of males was 1.3 times the 1991 figure in 1996 at 57.3% while the ratio of females was 2.2 times the 1991 figure at 6.7%. The increase in female license holders was approximately 1.7 times more than male license holders (Table 1). |
| Table 1. Breakdown of Senior Citizen License Holders
(Persons)
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| In view of the fact that the ratio of senior citizen license holders to all other license holders will increase year by year as society ages, it is conceivable that the future will see an even greater increase in the use of the motor vehicle as a means of moving from one place to another (referred to in this chapter as mobility) for senior citizens. | |
| In FY1996, Management and Coordination Agency conducted the "Survey on Mobility of Senior Citizens" on members of the community 65 years of age and older (3,503 subjects nationwide). The following distinctive aspects were revealed by the survey. |
| 1) | An extremely large number of senior citizens leave their homes to shop or receive hospital treatment. |
| 2) | Senior citizens go out during daylight hours, either in the morning or in the afternoon, and avoid going out at night. |
| 3) | When going out, they use a bicycle, motor vehicle or other convenient, private means of transportation rather than public transport facilities. |
| 4) | Senior citizen drivers have an extremely high rate of vehicle dependency with approximately 75% driving more than 3 or 4 times a week. |
| 5) | A significant 52.9% of senior citizens say that they would stop driving when they no longer felt unsafe. However, a considerable 32.3% say that they would wait until the time came (they do not want to give up driving). |
| 6) | Traffic safety education has still not reached adequate proportions in the community. This is evident in the 84.4% of respondents who have participated in the old lecture intensive style of education as against a mere 10.7% who had had taken part in participatory, hands-on, practical courses. |
| 7) | While 5.5% of all senior citizens have been involved in accidents, most commonly while riding a bicycle, 38.8% have experienced near misses (a frightening incident without collision) usually as pedestrians. |
| 8) | The main difficulties encountered by senior citizens on the road are ( in order of prevalence): discourteous behavior by younger people, unlit bicycles, and difficulty in negotiating stairs and pedestrian bridges. |
2. Traffic Accidents Involving Senior Citizens
| (1) | Senior Citizen Traffic Accident Fatalities |
| Traffic accidents involving senior citizens caused 2,834 fatalities in 1991. This figure increased by a factor of 1.1 in 1996 to 3,145. Since 1994, fatalities have exceeded 3,000 each year. | |
| In a comparison of older senior citizens and younger senior citizens (those between the ages of 65 and 75), traffic accident fatalities among the former exceeded fatalities among the latter (Fig.9). |
| The ratio of senior citizens involved in all traffic accident fatalities was 25.5% in 1991, however, this was 31.6% in 1996, an increase of 6.1% in five years. The number of traffic accident fatalities per 100,000 senior citizens in the community in 1996 was much greater than the averages for all age groups and older senior citizens were a conspicuous 2.8 times greater (Fig.10). | |
| Because physical functions are sometimes impaired, senior citizens run a remarkably high risk of death rather than injury and in 1996, the mortality rate (fatalities/fatal injuries) was 3.7%, 3.6 times the average for all age groups (1.04%). The mortality rate for accidents involving pedestrians was extremely high. |
| (2) | Breakdown of Senior Citizen Traffic Accident Fatalities |
| The overwhelming majority of senior citizen fatalities as a result of traffic accidents has always occurred where pedestrians are involved, followed by fatalities resulting from accidents involving pedalcyclists. Since 1995, fatalities due to accidents while riding a motor vehicle have surpassed those due to accidents while riding a bicycle. The number of traffic accident fatalities among senior citizens in 1996 when broken down by road user type were: pedestrians - 50.5%, motor vehicle occupants - 19.6%, pedalcyclists - 18.6%, and motorcyclists - 11.0%. A breakdown by road user type over all age groups shows that the ratios of pedestrian and pedalcyclist fatalities are particularly high (pedestrians - 28.1%, motor vehicle occupants - 43.1%, pedalcyclists - 10.6%, and motorcyclists 17.9%). | |
| A comparison between 1991 and 1996 of senior citizen traffic accident fatalities in all user types reveals that there were 1.5 times more motor vehicle occupant fatalities, 1.2 times more pedalcyclist fatalities and motorcyclist fatalities in 1996 (Fig.11). |
| When traffic accident fatalities by road user type are divided into younger senior citizen and older senior citizen classifications, there was a high ratio of pedestrian fatalities among the latter at 61.5% in 1996. However, combined, they made up a mere 20.9% of motorcyclist and motor vehicle occupant fatalities. | |
| Meanwhile, in 1996, motor vehicle occupant fatalities among younger senior citizens increased by a factor of 1.5 over 1991. This was a significantly high 28.8% of all fatalities (Fig.12). |
| Traffic accident fatalities among senior citizens in 1996 broken down by gender and road user type revealed the following substantial differences: Pedestrians - males 31.9%, females 71.2%; motor vehicle occupants - males 26.6%, females 11.9%; pedalcyclists - males 23.0%, females 13.7%; motorcyclists - males 18.3%, females 3.0%. Pedestrian fatalities constituted the majority of female fatalities while motor vehicle occupant fatalities involved fewer females than males. Female motorcyclist fatalities were also extremely few. | |
| However, motor vehicle occupant fatalities continued to climb in both male and female classifications and in 1996, there were 1.5 times more fatalities (males 440, females 177) than in 1991 (males 291, females 116). | |
| A breakdown of traffic accident fatalities for 1996 into gender and road user type classified by younger senior citizen and older senior citizen revealed the following: @ Motor vehicle occupants made up 36.7% of all younger male senior citizen fatalities, increasing from 211 in 1991 to 319 in 1996 - a factor of 1.5. A Pedestrians made up a surprising 83.3% of all fatalities among older female senior citizens (Fig.13). |
| Thus, more males than females, and younger senior citizens than older senior citizens, were involved in motor vehicle occupant fatalities while the reverse applied to pedestrian fatalities. This correlates to the ratio of male to female senior citizen license holders. | |
| When viewed by time of day, the number of traffic accident fatalities among senior citizens in 1996 peaked at 974 between the hours of 4:00pm and 8:00pm (440 between 4:00pm and 6:00pm and 534 between 6:00pm and 8:00pm) and comprised 31.0% of the total. By road user type, pedestrian fatalities peaked between 4:00pm and 8:00pm; pedalcyclist fatalities peaked between 8:00am and 12:00pm while a comparatively high number of motor vehicle occupant and motorcyclist fatalities occurred between 8:00am and 6:00pm (Fig.14). |
| (3) | Fatal Traffic Accidents Involving Senior Citizens |
| Comparisons of accidents in which senior citizens were either the primary or secondary party have always shown that the latter was more common than the former and, therefore, the outlook is that many fatal accidents will involve senior citizens as victims. However, based on road user type, fatal accidents involving motor vehicle occupants in which senior citizens are the primary parties are on the increase. In 1996, such accidents made up 48.0% of all fatal accidents in which senior citizens were the primary parties, 1.6 times higher than in 1991 (Fig.15). |
| Broken down by age group, the ratios of road user type in fatal accidents in which senior citizens were the primary party in 1996, lead to the conclusion that in many traffic accidents in which senior citizens are involved as pedestrians, pedalcyclists or motorcycle rider or passenger, their actions were more attributable to the cause of the accident. | |
| In traffic accident fatalities involving senior citizens as pedestrians or motor vehicle occupants, it was found that significantly few license holders were involved in either case. This leads us to believe that license holders are more capable of adapting to road and traffic conditions (Fig.16). |
II. Traffic Safety Strategies for Senior Citizens
1. Formulation of Comprehensive Traffic Safety Strategies for Senior Citizens
The government has stepped up traffic safety policies for senior citizens with the "Comprehensive Traffic Safety Policies for Senior Citizens" (designated by Traffic Policy Council in 1988.) and the "Future Senior Citizens Traffic Safety Strategy" (designated by the Departmental Conference of Promoting Traffic Safety Measures for Senior Citizens, 1992). In addition to this, it is vigorously engaged in stepping up its strategies and placing emphasis on the prevention of traffic accidents involving senior citizens in the Sixth Fundamental Traffic Safety Program (designated by the Central Traffic Safety Countermeasure Conference, 1996).
2. Implementing Traffic Safety Strategies for Senior Citizens
| (1) | Raising Traffic Safety Awareness in Senior Citizens | ||||||||
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| (2) | Creating a Traffic Environment in which Senior Citizens can Live in Safety | ||||||||
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| (3) | Safety Strategies for Senior Citizen Drivers | ||||
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| (4) | More Research Studies on Traffic Safety for Senior Citizens |
| The government is contributing to the formulation of traffic safety strategies for senior citizens by conducting multi-faceted research studies into standard behavior in traffic by senior citizens, their modes of participation in traffic, the driving conditions they encounter and their level of awareness while driving. |
3. Future Directions in Comprehensive Road Safety Strategies for Senior Citizens
| 1) | The government is striving to achieve complete traffic safety awareness in the senior citizen community by introducing participatory, practical, hands-on traffic safety education; stepping up all community information activities; promoting public knowledge in regard to the effects of reflective material ; and encouraging community acceptance of products which incorporate this material. |
| 2) | The government will create traffic environments which allow senior citizens to participate in comfort. To achieve this, it is providing signals which emits audio signals and allow more time for crossing for physically impaire dpedestrians, wider pedestrian thoroughfares, streets with sidewalks and more community roads; by imposing traffic regulations in community districts; by forming pedestrian zones between neighborhoods; and by providing overtaking lanes and easily discernible road signs. |
| 3) | The government will expand aptitude testing and courses on practical driving when licenses are renewed, promote the development of vehicles which are more empathetic with the needs of senior citizens and step up other traffic safety strategies for senior citizens. |
| 4) | Research studies will also be conducted on senior citizen behavioral patterns in traffic environments to form a basis with which to formulate and implement detailed traffic safety strategies for that section of the community. |
CHAPTER 3
Principal Policies IN 1996
The government emphasized the following important policies in the initial fiscal year of the Sixth Fundamental Traffic Safety Program.
| (1) | Greater Emphasis on the Provision of Traffic Safety Facilities | ||||||||
| On December 13, Cabinet passed a resolution approving the Sixth Five-Year Plan for Traffic Safety Facilities Improvement which was to commence in FY1996 and the following projects were implemented. | |||||||||
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| (2) | Installation of a Road Traffic System Using Sophisticated Telecommunic ations Systems |
| In July 1996, five ministries and agencies formulated a general concept for the Intelligent Traffic System (ITS) as a basis for stepping up the nation-wide installation of the Vehicle Information and Communications System (VICS) service. They also tested the Universal Traffic Monitoring System (UTMS) and the Public Transport Priority System (PTPS) while operating the Electronic Toll Collection system (ETC) on an experimental basis in preparation for its introduction. |
| (3) | Complete Compliance with Seat Belt Usage Requirements |
| To achieve complete community compliance with the requirement to wear seat belts and secure children in child seats, the government used all its available resources for public information activities and conducted extensive public relations exercises through the entire spectrum of the media. In conjunction with this, an effective campaign was waged to encourage the use of seat belts using the Selective Traffic Enforcement Program (STEP) in a combination of community education, public relations and enforcement programs. A public relations campaign was also conducted in relation to the use of air bags to complement seat belts. |
| (4) | Community Traffic Safety Education |
| A model traffic safety education program was introduced aimed at that age group of high school students about to obtain driving licenses. |
| (5) | Public Relations Campaign Concerning the Use of Mobile Telephones whil e Driving |
| Based on fact-finding investigations concerning traffic accidents caused
by the use of mobile telephones while driving, amendments were made to
the "Rules of the Road" in October 1996, stipulating that a
mobile telephone was not to be used while driving and that they should
be switched off before driving so that they do not ring. The Council on Using Mobile Telephones in Public was formed and worked in conj unction with private enterprise across the country to educate the community in regard to the public use of mobile telephones through joint advertising in national newspapers and by distributing booklets. |
| (6) | Introduction of Comprehensive Spot Surveys on Traffic Safety |
| Traffic safety depends on people, roads and vehicles. Because this is an issue which should be considered from the perspective of the user, comprehensive field surveys on road users and people in the community were introduced in an effort to create better road transport environments. |
| (7) | Improvements to Safety Standards for Road Transport Vehicles |
| Improvements introduced in September 1996 will enable the gradual introduction of a wider range of vehicles for frontal collision tests and the inclusion of lateral collision tests commencing in October 1997. |
| (8) | Development Assistance on the Advanced Safety Vehicle (ASV) |
| The establishment of the ASV Promotion Committee lent impetus to research and development in preparation the introduction of the ASV. |
| (9) | Vehicle Safety Information Service |
| Collision safety performance and other vehicle safety performance data were collated in a format which is easily understandable for users, after a trial in FY1995 was offered as a full service in FY1996. |
PART 2
Railway Transport
Chapter 1
Railway Accidents
I. Railway Accidents in Recent Years
Rail transport accidents including level crossing accidents have been declining for some time and stood at 1,012 in 1996 resulting in 846 casualties (346 fatalities) (Fig.17). This was due to the implementation of comprehensive safety strategies which included improved level crossing accident prevention measures, the installation and upgrading of automatic transport systems (ATS) to meet faster, more frequent train services and other operational safety equipment, improved controllers and better qualified crew. More than half of these accidents (547) were at level crossings.
A look at a breakdown of the total number of accidents reveals that the overall majority involved level crossing damage (52.8%), 35.9% involved human casualties and 7.6% resulted in road damage.
Level crossing improvements have continued with the installation of overhead crossings, structural improvements and safety equipment based on the recommendations of the Railway Crossing Improvement Law (Act 195, 1961) and the The Sixth Program of Comprehensive Level Crossing Prevention Measures. Adjacent level crossings were abolished in conjunction with the construction of overhead crossings and structural improvements.
Also, to improve the resistance of existing railway structures to damage from earthquake, reinforcement work and work to prevent bridge collapse have begun on bridge girders and abutments, cuttings and central supports in tunnels on the Shinkansen line and heavy traffic sectors.