The increased use of cell phones and the ensuing dialogue at the state and local levels of government on their use while driving have brought the broader issue of distracted driving to the forefront of traffic safety issues being addressed by the state's traffic safety community. Despite this increased attention on the issue of distracted driving in recent years, information is limited with regard to the specific sources of distracted driving that most frequently contribute to traffic crashes or how wide-spread these distracting activities or behaviors may be within the driving population.

To address the need for more information, the University at Albany's Institute for Traffic Safety Management and Research (ITSMR) is conducting a comprehensive study to examine the issues related to distracted driving, with a focus on the use of cell phones while driving. The primary objectives of the study are to identify the sources of distracted driving and to determine the extent to which those specific sources contribute to crashes, fatalities, and injuries. The study includes four major components: 1) telephone surveys of New York State licensed drivers, 2) observational surveys of drivers on New York's roadways, 3) analyses of tickets issued for non-compliance with New York's cell phone law, and 4) analyses of NYS accident records.

This Research Note summarizes the results of a telephone survey of NYS licensed drivers that was conducted in September 2001 and the results of an observational survey that was conducted in April and June 2002. It also presents the results from the preliminary analysis of traffic tickets that were issued during the six-month period December 2001 to May 2002 for non-compliance with the cell phone law. The fourth major component of the study, an analysis of crash records, will be initiated in December 2002.

The Institute for Traffic Safety Management and Research (ITSMR) conducted a statewide telephone survey of New York State licensed drivers in fall 2001. The telephone survey will be repeated in fall 2002 to examine changes in distracted driving over time, and in particular, changes in awareness, attitudes, and reported use of cell phones between the pre-law and post-law time periods.

METHOD

The questionnaire was developed by the Institute for Traffic Safety Management and Research (ITSMR), in consultation with Governor George E. Pataki's Traffic Safety Committee. FactFinders, Inc. was involved in refinement and pretesting of the instrument. The sample was comprised of 805 randomly-selected respondents with valid New York State driver's licenses; the sample was stratified to reflect the proportion of licensed drivers residing in each of the state's 62 counties. Telephone numbers used in the sampling were generated by random-digit dialing.

The data analysis was conducted by ITSMR with the use of SAS® software. Frequencies were computed for every variable in the data set and cross-tabulations were computed for key variables by selected demographic variables, including gender, age, and region. The statistical sampling error associated with the overall findings based on the random probability sampling of 805 ranges from +2.1 - +3.5 percentage points at the 95% confidence level. The Chi square test at a level of significance of 0.05 was used to examine differences in responses by driver demographic characteristics.

A copy of the full report, titled New York State Survey on Cell Phone Use and Other Distracted Driving Behaviors is available directly from ITSMR.

SUMMARY

Cell Phone Use While Driving 

* Almost half (46%) of the respondents said they have a cell phone with them always or most of the time while driving. Of the drivers who have a cell phone in their vehicle at least some of the time: 

• 12% use the phone very often, 20% use it sometimes, and 34% use the phone once in a while. 
• 28% always or most of the time pull off to the side of the road to use the cell phone. 
• Of the drivers who use a cell phone while driving, half said they have a hands-free feature or adapter for their phone; 64% of these respondents use the feature always/most of the time.

Perception of Safety Problems of Using Cell Phones While Driving 

* 64% of all drivers said that using a cell phone affects a driver's ability to drive safely a great deal.

Familiarity with New York's Cell Phone Law 

* 90% of drivers had seen, read, or heard about New York's new law banning the use of hand-held cell phones while driving.

Other Driver Distractions 

* 25% of the respondents said that they very often change the radio, CD, or tapes; 18% very often adjust the heat or air conditioning, 12% very often eat or drink while driving, and 9% daydream very often. 

* 55% said cell phone use was the most unsafe distracting behavior; an additional 15% identified it as the second most distracting behavior.

Distracted Driving and Involvement in a Crash 

* 12% of the respondents said they had an accident because they were distracted. 

* 43% of the respondents said that they almost had an accident because they were distracted. 

* 27% of the respondents said that they had or almost had an accident because another driver was using a cell phone.

RESULTS

Cell Phone Use While Driving

In a 1992 telephone survey of NYS licensed drivers on traffic safety issues conducted by ITSMR, 7% of the survey respondents said that they usually have a phone in the car they drive or ride in.  The 2001 survey shows that this proportion has increased substantially.  As indicated in Table 1, almost one-half (46%) of the survey respondents said that they have a cell phone with them always or most of the time while driving.

Of the drivers who said that they have a cell phone in their vehicle at least some of the time, 12% reported they very often use the phone, 20% use it sometimes, and 34% use the phone once in a while.

Almost three in ten drivers with cell phones in their vehicle said that they pull off to the side of the road to use the cell phone always or most of the time. Of the drivers who reported using a cell phone while driving, one-half said that they have a hands-free feature or adapter for their phones and almost two-thirds (64%) of the respondents who have a hands-free feature or adapter said that they always/most of the time use it.

Perception of Safety Problems Associated with Using Cell Phones While Driving

Two survey questions were designed to assess drivers' perceptions of safety problems associated with using cell phones while driving. As indicated in Table 2, almost all the drivers surveyed (95%) said that, in their opinion, using a cell phone while driving affects a driver's ability to drive safely either a great deal (64%) or somewhat (31%). This compares to 87% of the survey respondents in the 1992 ITSMR telephone survey of NYS licensed drivers on traffic safety issues who were asked the same question.

When asked which aspect of using a cell phone is most likely to distract attention away from driving, the majority of drivers (58%) thought that dialing the phone was the most distracting part of cell phone usage, followed by holding a conversation (22%).

TABLE 2
PERCEPTIONS OF SAFETY PROBLEMS ASSOCIATED WITH
USING A CELL PHONE WHILE DRIVING

To assess drivers' familiarity with the cell phone law, survey respondents were asked if they had seen, read, or heard about New York's new law banning the use of hand-held cell phones while driving. Nine of ten drivers surveyed said they had heard about the law.

Other Driver Distractions

Drivers were asked how frequently they engage in a number of specific, potentially distracting, behaviors. Twenty-five percent of the respondents said that they very often change the radio, CD, or tapes; 18% very often adjust the heat or air conditioning, 12% very often eat or drink while driving, and 9% daydream very often.

Drivers were then asked to describe what they thought was the most unsafe and the second most unsafe things drivers do that takes their attention away from driving. The results are summarized in Table 3.

TABLE 3
PERCEIVED MOST/SECOND MOST UNSAFE
DISTRACTING BEHAVIOR

Crashes Associated with Distracted Driving

Table 4 summarizes the survey respondents' experience with crashes as a result of being distracted; 12% of respondents said they had an accident because they were distracted or their attention was taken away from driving. Of those who had been distracted and crashed, almost half (49%) blamed daydreaming or not paying attention; 13% named other passengers arguing or talking as the cause of the distraction leading them to crash, and 9% noted other drivers' unsafe driving.

When asked if they had ever almost had an accident because they were distracted, 43% replied affirmatively. Of those who had almost had a crash as a result of being distracted, 40% noted daydreaming or not paying attention as the distraction, 16% cited dealing with a child's need or problem and 15% noted other passengers. These causes were followed by adjusting radios, CDs, or tapes (8%); cell phone use (6%); and unsafe driving on the part of other drivers (6%).

Finally, when asked specifically whether they had ever had an accident or almost had an accident because another driver was using a cell phone, 27% responded affirmatively.

TABLE 4
DISTRACTED DRIVING AND CRASH EXPERIENCE 
DUE TO DRIVER'S OWN BEHAVIOR

NEW YORK STATE OBSERVATIONAL SURVEY 
OF CELL PHONE USE AND OTHER 
DISTRACTED DRIVING BEHAVIORS

INTRODUCTION

To complement the data gathered through the telephone survey of New York State licensed drivers, the University at Albany's Institute for Traffic Safety Management and Research (ITSMR) conducted a statewide observational survey to collect information on the distracted driving behaviors or activities that drivers are observed to be engaged in, including the use of a cell phone. The findings from the observational survey should address the limitations associated with the self-reported data collected through the telephone survey.

METHOD

The observational survey was conducted in April and June 2002 in conjunction with ITSMR's annual statewide observational survey of seat belt use. The survey included 200 sites in 20 counties across the state and was conducted on both major and local roads. The population observed in the survey included drivers in passenger cars, minivans, vans, sport utility vehicles, and pick-up trucks. The results of the survey are summarized below. To examine changes in distracted driving over time, especially the use of cell phones while driving, the observational survey will be repeated in 2003.

RESULTS

Observations of Cell Phone Use

A total of 39,042 drivers were observed in the surveys conducted in April and June 2002. Of these drivers, 1,160 (3%) were using a cell phone while driving. This rate of cell phone use is consistent with the National Highway Traffic Safety Administration's findings in a 2000 national survey. Of the New York State drivers observed using a cell phone, two-thirds (67%) were holding the phone to their ear in violation of New York's cell phone law. This equates to an illegal cell phone use rate of 2% among the state's driving population six months after implementation of the law. A third of the drivers were using a cell phone legally; 11 % were dialing and 22% were using a hands-free adapter/device.

Observations of Other Distracted Driver Behaviors

In addition to cell phone use, observations of other behaviors and activities that could distract the attention of drivers were recorded. Approximately 15% of the 39,042 drivers were observed to be engaged in a distracting activity. Of these 5,733 drivers, 35% were smoking, 26% were eating or drinking, and 13% were adjusting the climate controls, entertainment system or other vehicle controls. In addition, 7% were observed reading or writing while driving, 5% were attending to their personal appearance, and 4% of the drivers were attending to a child in the vehicle.

Effective November 1, 2001, New York State's cell phone law bans the use of hand-held cellular phones while driving. Violations of the law carry a penalty of a fine of up to $100; no penalty points are assessed on the driver's license. To determine the extent to which the law is being obeyed, the Institute is examining data on tickets issued to drivers for violation of the law for the six-month period, December 1, 2001 - May 2002.  Because the first month of the law was designated a verbal warning period, November 2001 was excluded from the analyses.

METHOD

Ticket data for the six-month period were obtained in August 2002 from the NYS Department of Motor Vehicles' Traffic Safety Law Enforcement and Disposition system (TSLE&D) and its Administrative Adjudication system (AA). The TSLE&D system covers all areas of the state except for New York City, the five western towns of Suffolk County on Long Island, and the cities of Buffalo and Rochester. These areas not under TSLE&D are covered by the AA system. Since the TSLE&D system captures different, more comprehensive data than the AA system, more detailed analyses of the TSLE&D data are being conducted. The preliminary results of these analyses are summarized below.

As indicated in Table 5, 30,908 tickets were issued statewide for violation of New York's cell phone law between December 1, 2001 and May 31, 2002. Forty- two percent (13,118) of the tickets were issued under the TSLE&D system and 58% (17,790) were issued under the Administrative Adjudication system.  For tickets issued under the TSLE&D system, a number of variables related to the circumstances of the event and the demographic characteristics of the driver were examined.

Figure 1 shows that three-quarters of the drivers were ticketed by local police agencies, with 45% being ticketed by the New York City Police Department and 30% being ticketed by other local police agencies. Fourteen percent were ticketed by the State Police and 11 % were ticketed by the sheriff or county enforcement agency.

Figure 1
Enforcement Agency
(N=30,908)

Eighty-five percent of the drivers ticketed were licensed in New York State (Table 6). Ten percent were licensed in one of the border states, and about 4% were licensed in other U.S. states.

Tickets Issued Under the TSLE&D System

Characteristics of the Event

Of the 13,118 drivers issued tickets under TSLE&D between December 1, 2001 and May 31, 2002, 79% were issued only a ticket for a cell phone violation, while 21% were also issued at least one companion ticket. As shown in Figure 2, of the 2,726 drivers issued a companion ticket, the largest proportion of companion tickets was issued for a seat belt violation.

Figure 2
Drivers Issued Companion Tickets
TSLE&D Agencies*
(N=2,726)

Figure 3 
Day of Week
(N=13,118)

Figure 4
Time of Day
(N=13,118)

Table 7 indicates that nine out of ten drivers were ticketed through routine patrol activities. Less than one percent were ticketed as a result of a crash.

Approximately one-half of the drivers were ticketed on a local road (Figure 5). About three out of ten were ticketed on the state road system, and one in ten was ticketed on the interstate roadway system.

Figure 5
Road System
(N=13,118)

Driver Characteristics

Two-thirds of the drivers ticketed were men, and one-third were women. As indicated in Figure 6, the largest proportion of drivers ticketed was 30-39 years of age (29%), followed by drivers 40-49 years of age (22%). Ten percent of the drivers were under the age of 21, and 12% were 50 years or older.

Figure 6
Driver Age
(N=13,118)

Adjudication of Cell Phone Tickets

Analyses related to the adjudication of tickets issued to drivers under both ticket systems, TSLE&D and Administrative Adjudication, were conducted. Of the 30,908 tickets issued between December 1, 2001 and May 31, 2002, as of August 2002, approximately 74% (22,958) of the tickets had been adjudicated. As indicated in Figure 7, of the cases adjudicated, 84% of the drivers were convicted as charged, and 2% were convicted on a different charge. Eleven percent of the drivers had the charge dismissed, and 3% were acquitted of the charge.

Figure 7 
Outcome of Adjudication Process 
Tickets Issued December 2001-May 2002
(N=22,958)

Sanctions for Cell Phone Convictions

The New York State cell phone law provides for a fine of up to $100 for violation of the law. As shown in Table 8, the largest proportion (50%) of drivers convicted of violating the cell phone law received a fine ranging from $61 to $70, followed by drivers receiving a fine ranging from $21 to $30 (11 %). Three percent received a fine ranging from $91 to $100, while 9% received no fine. The average fine for the 19,394 drivers convicted of violating the cell phone law was $59.

Table 8 
Fines for Cell Phone Convictions

For further information regarding this Research Note, please contact:

Anne M. Dowling, Ph.D., Deputy Director 
Institute for Traffic Safety Management and Research 
80 Wolf Road, Suite 607, Albany NY 12205-2604 
Phone: 518-453-0291; Fax: 518-453-0298; E-mail: adowling@global2000.net