1

Historical Perspective of Motorcycle Helmet Laws

Historical Perspective of Motorcycle Helmet Laws

Linda Cosgrove, PhD.

Chief, Injury Prevention Division

National Highway Traffic Safety Administration

SAE Conference

May 14, 2007

Linda Cosgrove, PhD.

Chief, Injury Prevention Division

National Highway Traffic Safety Administration

SAE Conference

May 14, 2007

IntroductionIntroduction

40 year history of Motorcycle Helmet Laws Federal & State legislation Broken into 5 periods Cyclical pattern of enactment and repeal of

federal sanctions/incentives & state laws

An extremely heated debate over laws

40 year history of Motorcycle Helmet Laws Federal & State legislation Broken into 5 periods Cyclical pattern of enactment and repeal of

federal sanctions/incentives & state laws

An extremely heated debate over laws

2

States with Universal Helmet Use LawsStates with Universal Helmet Use Laws

0

5

10

15

20

25

30

35

40

45

50

Sta

tes

wit

h U

nive

rsal

Law

s

66 68 70 72 74 76 78 80 82 84 86 88 90 92 94 96 98 00 02 04 06

Year

Federal Req

Sanctions Lifted

Stability

Federal Penalties

Penalties Eliminated

Early History of Motorcycle Helmet LawsEarly History of Motorcycle Helmet Laws

1966: Highway Safety Act

States were required to have universal helmet law or

Highway construction funds withheld

As of 1975: 47 States & DC enact universal laws

1966: Highway Safety Act

States were required to have universal helmet law or

Highway construction funds withheld

As of 1975: 47 States & DC enact universal laws

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Motorcycle Helmet Legislation History 1975-1980 & 1981-1988

Motorcycle Helmet Legislation History 1975-1980 & 1981-1988

1975: Congress repealed requirement and penalties 28 States repeal universal helmet laws 1980: 19 States & DC with universal helmet laws

1981-1988: Period of relative quiet 1982: Louisiana re-enacted its law 1983: Wyoming repealed its law

1975: Congress repealed requirement and penalties 28 States repeal universal helmet laws 1980: 19 States & DC with universal helmet laws

1981-1988: Period of relative quiet 1982: Louisiana re-enacted its law 1983: Wyoming repealed its law

1989-1994: Federal Penalties 1989-1994: Federal Penalties

1990 GAO Study

With universal laws: helmet use 92-100%

Without laws: helmet use 42-59%

Lower injury & fatality rates associated with introduction of universal helmet law

Higher head injury & medical costs in laws absence

1990 GAO Study

With universal laws: helmet use 92-100%

Without laws: helmet use 42-59%

Lower injury & fatality rates associated with introduction of universal helmet law

Higher head injury & medical costs in laws absence

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1989-1994 continued1989-1994 continued

1991 ISTEA passed Provided incentive grants to States for

enacting universal helmet laws Transfer program effective in 1995

1995: 26 States have universal laws (up from 20 in 1988)

1995: Congress repealed ISTEA

1991 ISTEA passed Provided incentive grants to States for

enacting universal helmet laws Transfer program effective in 1995

1995: 26 States have universal laws (up from 20 in 1988)

1995: Congress repealed ISTEA

1995 to Present: Penalties Eliminated1995 to Present: Penalties Eliminated

1996-2003: 7 States repealed universal laws

2004: Louisiana re-enacted law

2006: 20 States, DC, & Puerto Rico have universal

laws 27 States have laws for younger riders 3 States have no helmet laws

1996-2003: 7 States repealed universal laws

2004: Louisiana re-enacted law

2006: 20 States, DC, & Puerto Rico have universal

laws 27 States have laws for younger riders 3 States have no helmet laws

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How Law Change Affected Florida

How Law Change Affected Florida

On July 1, 2000, Florida repealed the legal requirement that all motorcyclists wear protective helmets

State law requires use only by riders Under the age of 21

Or by older riders who have less than $10,000 medical insurance coverage

On July 1, 2000, Florida repealed the legal requirement that all motorcyclists wear protective helmets

State law requires use only by riders Under the age of 21

Or by older riders who have less than $10,000 medical insurance coverage

Observed Helmet UseSource: Center for Urban Transportation Research,

special observation studies (1998,2004)

Observed Helmet UseSource: Center for Urban Transportation Research,

special observation studies (1998,2004)

0102030405060708090

1993 1998 2002

ApprovedNon CompliantNo Helmet

0102030405060708090

1993 1998 2002

ApprovedNon CompliantNo Helmet

6

241

358301

274173178

152164

125141

050

100150200250300350400

94 95 96 97 98 99 00 01 02 03Year

Mot

orcy

clis

t Kill

ed 241

358301

274173178

152164

125141

050

100150200250300350400

94 95 96 97 98 99 00 01 02 03Year

Mot

orcy

clis

t Kill

ed

Motorcyclists Killed In Florida 1994-2003 (Source: FARS)

Motorcyclists Killed In Florida 1994-2003 (Source: FARS)

Annual Florida Motorcycle Registration

Source: FL DHSMV

Annual Florida Motorcycle Registration

Source: FL DHSMV

0

50,000

100,000

150,000

200,000

250,000

300,000

350,000

'94 '95 '96 '97 '98 '99 '00 '01 '020

50,000

100,000

150,000

200,000

250,000

300,000

350,000

'94 '95 '96 '97 '98 '99 '00 '01 '02

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Time Series AnalysisSource: FARS, FL DHSMV & FHWA

Time Series AnalysisSource: FARS, FL DHSMV & FHWA

Time Series: Motorcycle Fatalities, Florida vs Georgia (FARS 1994-2002)

Time Series: Motorcycle Fatalities, Florida vs Georgia (FARS 1994-2002)

00

55

1010

1515

2020

2525

3030

3535

4040

4545

5050

Jan

Jan

-- 9494

MayMay

-- 9494

Sep

Sep

-- 9494

Jan

Jan

-- 9595

MayMay

-- 9595

Sep

Sep

-- 9595

Jan

Jan

-- 9696

MayMay

-- 9696

Sep

Sep

-- 9696

Jan

Jan

-- 9797

MayMay

-- 9797

Sep

Sep

-- 9797

Jan

Jan

-- 9898

MayMay

-- 9898

Sep

Sep

-- 9898

Jan

Jan

-- 9999

MayMay

-- 9999

Sep

Sep

-- 9999

Jan

Jan

-- 0000

MayMay

-- 0000

Sep

Sep

-- 0000

Jan

Jan

-- 0101

MayMay

-- 0101

Sep

Sep

-- 0101

Jan

Jan

-- 0202

MayMay

-- 0202

Sep

Sep

-- 0202

00

55

1010

1515

2020

2525

3030

3535

4040

4545

5050

-- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- --

TimeTime

Fata

litie

sFa

talit

ies

MC Fatalities, FLMC Fatalities, FL MC Fatalities, GAMC Fatalities, GA

Medical Costs & Insurance CoverageMedical Costs & Insurance Coverage

Many States require helmet use only for adult riders who have limited insurance

Florida after repeal 75% of head injured motorcyclists were

charged $12,000 or more Less than 25% of the injured would be

covered by the $10,000 medical insurance requirement

Many States require helmet use only for adult riders who have limited insurance

Florida after repeal 75% of head injured motorcyclists were

charged $12,000 or more Less than 25% of the injured would be

covered by the $10,000 medical insurance requirement

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Motorcyclists Admitted to 240 Florida Hospitals for TreatmentMotorcyclists Admitted to 240 Florida Hospitals for Treatment

0

500

1000

1500

2000

2500

1998 1999 2000 2001 20020

500

1000

1500

2000

2500

1998 1999 2000 2001 2002

Source: Florida Agency for Health Care Administration

Before Helmet Law Repeal After Helmet Law Repeal

Head-Brain-Skull Injury Treatment Costs

Before and After Law Change

Head-Brain-Skull Injury Treatment Costs

Before and After Law Change

$19,733,8334742002

$17,555,2374452001Post Law

(30 months)

$39,877

Post Law(30 months)

$43,744,629

$6,455,5581782000 Post

$4,856,1471512000 Pre

$9,463,1722631999Pre Law

(30 months)

$34,518

Pre Law (30 months)

$20,779,939

$6,460,6201881998

Average Case CostTotal Costs

Costs (Adjusted)

Number of CasesPeriod

Adjusted by Consumer Price Index (DOL) for medical care, 1999-2002, expressed in 1998 dollars. Source: Florida Agency for Health Care Administration, Dept of Labor

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Total Gross Medical CostsSource: Florida Agency for Health Care Administration Total Gross Medical Costs

Source: Florida Agency for Health Care Administration

Total gross costs1 charged to hospital admitted motorcyclists with head, brain or skull injury more than doubled from $21 million to $44 million in the 30 months before and after the law change (adjusted for inflation)

Average case cost rose by more than $5,000 (adjusted) in the same time period

1Costs are for acute care, excluding rehabilitation costs

Total gross costs1 charged to hospital admitted motorcyclists with head, brain or skull injury more than doubled from $21 million to $44 million in the 30 months before and after the law change (adjusted for inflation)

Average case cost rose by more than $5,000 (adjusted) in the same time period

1Costs are for acute care, excluding rehabilitation costs

SummarySummary

Universal laws work Violators are easily detected 92 to 100% use with law, 50% without law

Fatalities rise in States with repealed laws relative to pre-repeal period and States with all-rider laws.

Medical costs rise when comparing pre to post repeal periods

Universal laws work Violators are easily detected 92 to 100% use with law, 50% without law

Fatalities rise in States with repealed laws relative to pre-repeal period and States with all-rider laws.

Medical costs rise when comparing pre to post repeal periods

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LimitationsLimitations

Universal Helmet Laws: not the sole cause of increase in fatalities

There was an increased trend in Florida motorcycle registration from the late 1990s through 2003

Factors that may have contributed to increased fatalities in addition to law change and increased ridership: Alcohol use & speed A demographic shift in motorcycle ridership Larger motorcycles

Universal Helmet Laws: not the sole cause of increase in fatalities

There was an increased trend in Florida motorcycle registration from the late 1990s through 2003

Factors that may have contributed to increased fatalities in addition to law change and increased ridership: Alcohol use & speed A demographic shift in motorcycle ridership Larger motorcycles