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I agree there are no doubt more bicycle and pedestrian injuries than are reported through any system. The true number of injuries may never be known because there will always be accidents which aren't reported.
I asked Marv Dye, Director of the Montana Department of Transportation (MDT), about their data collection methods. He assured me his people are researching and developing better methods for collecting accident data to more truly reflect the situation in Montana.
One of the efforts being coordinated by Albert Goke of MDT's Traffic Safety Bureau is to develop and implement a new crash report form and entire information system related to tying crash information to other human, vehicle and roadway-related data. This group is also developing a way to compare some of the public health injury information, that exists in a variety of locations within both the public and private health fields, with crash data. Work to link this data will continue to expand over the next several years.