[Senate Hearing 119-141]
[From the U.S. Government Publishing Office]
S. Hrg. 119-141
IF I COULD TURN BACK TIME:
SHOULD WE LOCK THE CLOCK?
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HEARING
BEFORE THE
COMMITTEE ON COMMERCE,
SCIENCE, AND TRANSPORTATION
UNITED STATES SENATE
ONE HUNDRED NINETEENTH CONGRESS
FIRST SESSION
__________
APRIL 10, 2025
__________
Printed for the use of the Committee on Commerce, Science, and
Transportation
[GRAPHIC NOT AVAILABLE IN TIFF FORMAT]
Available online: http://www.govinfo.gov
__________
U.S. GOVERNMENT PUBLISHING OFFICE
61-335 PDF WASHINGTON : 2025
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SENATE COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION
ONE HUNDRED NINETEENTH CONGRESS
FIRST SESSION
TED CRUZ, Texas, Chairman
JOHN THUNE, South Dakota MARIA CANTWELL, Washington,
ROGER WICKER, Mississippi Ranking
DEB FISCHER, Nebraska AMY KLOBUCHAR, Minnesota
JERRY MORAN, Kansas BRIAN SCHATZ, Hawaii
DAN SULLIVAN, Alaska EDWARD MARKEY, Massachusetts
MARSHA BLACKBURN, Tennessee GARY PETERS, Michigan
TODD YOUNG, Indiana TAMMY BALDWIN, Wisconsin
TED BUDD, North Carolina TAMMY DUCKWORTH, Illinois
ERIC SCHMITT, Missouri JACKY ROSEN, Nevada
JOHN CURTIS, Utah BEN RAY LUJAN, New Mexico
BERNIE MORENO, Ohio JOHN HICKENLOOPER, Colorado
TIM SHEEHY, Montana JOHN FETTERMAN, Pennsylvania
SHELLEY MOORE CAPITO, West Virginia ANDY KIM, New Jersey
CYNTHIA LUMMIS, Wyoming LISA BLUNT ROCHESTER, Delaware
Brad Grantz, Republican Staff Director
Nicole Christus, Republican Deputy Staff Director
Liam McKenna, General Counsel
Lila Harper Helms, Staff Director
Melissa Porter, Deputy Staff Director
Jonathan Hale, General Counsel
C O N T E N T S
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Page
Hearing held on April 10, 2025................................... 1
Statement of Senator Cruz........................................ 1
Statement of Senator Blunt Rochester............................. 2
Statement of Senator Curtis...................................... 38
Statement of Senator Lujan....................................... 45
Statement of Senator Young....................................... 47
Statement of Senator Markey...................................... 50
Witnesses
Hon. Rick Scott, U.S. Senator from Florida....................... 4
Scott Yates, Founder, Lock the Clock Movement.................... 5
Prepared statement........................................... 6
Jay Karen, Chief Executive Officer, National Golf Course Owners
Association.................................................... 7
Prepared statement........................................... 9
Dr. Karin Johnson, Practicing Physician and Professor of
Neurology, UMass Chan School of Medicine Baystate--On Behalf of
the American Academy of Sleep Medicine......................... 16
Prepared statement........................................... 18
Dr. David Harkey, President, Insurance Institute for Highway
Safety......................................................... 34
Prepared statement........................................... 35
Appendix
Response to written questions submitted to Scott Yates by:
Hon. Ted Cruz................................................ 57
Hon. Maria Cantwell.......................................... 57
Hon. Ben Ray Lujan........................................... 59
Hon. Lisa Blunt Rochester.................................... 59
Response to written question submitted to Jay Karen by:
Hon. Maria Cantwell.......................................... 60
Response to written questions submitted to Dr. Karin Johnson by:
Hon. Ted Cruz................................................ 60
Hon. Maria Cantwell.......................................... 61
Response to written questions submitted to Dr. David Harkey by:
Hon. Maria Cantwell.......................................... 63
Hon. Lisa Blunt Rochester.................................... 65
IF I COULD TURN BACK TIME:
SHOULD WE LOCK THE CLOCK?
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THURSDAY, APRIL 10, 2025
U.S. Senate,
Committee on Commerce, Science, and Transportation,
Washington, DC.
The Committee met, pursuant to notice, at 10:01 a.m., in
room SR-253, Russell Senate Office Building, Hon. Ted Cruz,
Chairman of the Committee, presiding.
Present: Senators Cruz [presiding], Scott, Young, Curtis,
Blunt Rochester, Lujan, and Markey.
OPENING STATEMENT OF HON. TED CRUZ,
U.S. SENATOR FROM TEXAS
The Chairman. Good morning, everyone. Welcome back, Senator
Scott, good to see you.
The Senate Committee on Commerce, Science, and
Transportation will come to order.
Twice a year we find ourselves adjusting our clocks,
shifting an hour of daylight forward in the spring, springing
it forward, and falling back in the fall.
For many Americans this biannual ritual is a minor
inconvenience, something we endure without giving it much
thought, but when you take a closer look at the implications of
changing the clocks, its impact on our economy, our health, and
our everyday lives, we can see that this practice is more than
an annoyance.
First, let us talk about energy savings, which has long
been the most common justification for Daylight Saving Time.
The original idea behind Daylight Saving Time was to reduce
energy consumption, by making better use of daylight during the
longer days of summer. The idea was simple, fewer hours of
darkness meant less electricity consumption for lighting and
heating.
This concept might have made sense in the early 20th
century, when our economy and our homes relied much more
heavily on energy consumption tied to daylight hours.
Today, the data show energy savings from Daylight Saving
Time are de minimis if not entirely nonexistent, advances in
technology, particularly in lighting and climate control, and
increased domestic energy production, have drastically reduced
the relative price of energy compared to the past, changing
clocks biannually impacts our health.
Research has shown that the abrupt shift in time,
especially the spring transition, when we lose an hour of sleep
disrupts our internal circadian rhythms and cause us sleep
deprivation. This leads to increased risks of health problems,
including higher rates of heart attacks, strokes, and even car
accidents immediately following the time change.
In fact, studies have shown that there is a spike in
workplace injuries and fatal car crashes during the days after
we shift our clocks forward. The disruption to sleep patterns
and the result in fatigue can have consequences on our
productivity, mental health, and well-being.
The time change is also an inconvenience for families. For
parents, especially those with young children, adjusting to the
time change is no simple task, sleep disruptions can result in
cranky children, restless nights, and a difficult adjustment
period that can last for weeks.
We also need to consider the economic and social impact.
There are arguments that longer daylight hours in the evening
can boost economic activity in certain sectors, such as retail,
tourism, and entertainment.
For instance, late afternoon golf leagues account for up to
40 percent of the annual revenue of some courses, while a
majority of golf instructors reported that nearly 50 percent of
their lessons are taught after 4 p.m. A golf course would lose
an estimated $500,000 annually if it lost the extra hour of
daylight in the summer. Of course, the early birds who like 7
a.m. tee times might be a bit annoyed with this shift.
Many states and countries, like Mexico, and Russia, and
Turkey, have already taken steps to move away from changing
clocks twice a year. Hawaii and Arizona have opted out of the
practice, and other countries in the past 10 years have either
abolished it or are in the process of doing so.
Congress has the authority to end this outdated and harmful
practice. This hearing is an excellent opportunity to examine a
thoughtful and rational approach to how we manage time. Whether
we lock the clock on Standard Time year round or on Daylight
Savings Time, let us think carefully about our health, our
economy, and well-being, and embrace a sensible approach to
time management. And I will now turn to Senator Blunt Rochester
for her opening.
STATEMENT OF HON. LISA BLUNT ROCHESTER,
U.S. SENATOR FROM DELAWARE
Senator Blunt Rochester. Thank you, Mr. Chairman, for
holding this important hearing. In our increasingly connected
world, it is more important than ever that we are thoughtful
about what it would mean to pick a permanent time for our
country. The Senate has tried this before, but the bill stalled
as this body took a harder look at how time changes work state
by state. What works in my home State of Delaware may not work
in Washington State, But I know I speak for many Americans when
I say it is time, it is time to figure this out.
People across our country are tired of the constant cycle
of falling back and springing forward. I mean, who has not
forgotten to change their clock on their microwave, I think
mine is still on the wrong time, and felt the immediate panic
of waking up late for work? Or think about the parents of young
children and pet owners who have to adjust sleep and feeding
schedules twice a year.
Some would say that these are just inconveniences. But the
back and forth between Daylight Savings Time and Standard Time
needs to change and needs to stop. We need to stop the clock.
We need to find a solution and stick with it.
Many states across our Nation have started to consider
legislation to pick a permanent time. Some, like Delaware, have
pushed for keeping Daylight Saving Time, the time we are in
right now, permanently. Others have sought to keep the Standard
Time, when we fall back, permanently.
But here is the thing: these twice-yearly time changes have
real impacts on real people. We know that changing the clock
disrupts sleep, which can lead to negative health outcomes.
Several studies have noted issues with mood disturbances,
increased hospital admissions, and even heart attacks and
strokes. We also know that being able to see the sun improves
mental and physical health as well. But more than that, time
changes can impact the safety of our communities. Darker
commuting times increase the risk of injuries and even death on
our way to school or work.
My home state has one of the highest per capita rates of
pedestrian fatalities, and dark roads with tired drivers make
it more dangerous for pedestrians. The important thing is that
we land on something consistent and make smart investments to
keep people safe.
For example, there were programs that we authorized in the
Bipartisan Infrastructure Law that focused on commonsense
safety improvements, but they are set to expire this Congress.
I hope the committee will keep this discussion in mind when it
comes time to reauthorize these infrastructure investments,
investments that could light, or that could light up dark
streets, add rumble strips to medians, turn chaotic
intersections into roundabouts, and more. These are the kinds
of smart policy choices we can make to protect people year-
round, regardless of whether it is Daylight Saving Time or
Standard Time.
But the first step is getting us all on the same page. I am
looking forward to today's conversation about the competing
health, safety, and economic impacts of choosing a permanent
time for our communities and moving the ball forward on this
important issue.
Thank you, Mr. Chairman. And I turn it back to you.
The Chairman. Thank you, Senator Blunt Rochester. And I
have to say, I think you have set a land-speed record for
moving from the chair on the end all the way here. And I will
just say Senator Cantwell probably needs to watch her back. And
I am somewhat disappointed in your excellent remarks that we
did not get you belting out the chorus of Cher's ``If I Could
Turn Back Time.''
Senator Blunt Rochester. I told you it is something that
peps us up. We need the energy.
The Chairman. Joining us today is our friend Senator Rick
Scott from the Sunshine State to give remarks on his
legislation, the Sunshine Protection Act.
Senator Scott, welcome back to the Commerce Committee.
STATEMENT OF HON. RICK SCOTT,
U.S. SENATOR FROM FLORIDA
Senator Scott. First off, Senator Cruz, thank you for the
opportunity. And Senator Blunt Rochester, you have done a
better job keeping your seat in this committee also than I was
able to.
Thanks for the introduction and the invitation to introduce
my bill, the Sunshine Protection Act, to finally lock the
clock. Senator Cruz, I know your morning, it has been a tough
week for you with the NCAA Championship. I do look forward to
the one----
The Chairman. Your time has expired.
[Laughter.]
Senator Scott. All right. My bipartisan, Bicameral Sunshine
Protection Act that will end the twice-yearly time change and
make Daylight Savings Time the national year-round standard. I
have the support of 17 of my colleagues here in the Senate and
a House companion led by my friend Congressman Vern Buchanan
from the Great State of Florida.
I am sure all of us have heard from our constituents on
this. The American people are sick and tired of changing their
clocks twice a year. It is confusing, unnecessary, and
completely outdated. It is an understatement to say that our
Nation has changed since the United States began changing the
clock over a century ago. For example, American households have
electricity now. We also have self-driving cars, computers, and
cell phones.
Now, changing the clocks twice a year proves more of an
annoyance to families than a benefit to them. In 2018, when I
was Governor of Florida, I signed legislation that would allow
the state to opt out of the practice of changing the time, and
nearly two dozen other states have done the same, pending
Federal approval that will come by passing the Sunshine
Protection Act.
The American people love having an extra hour of sunlight,
especially in my State of Florida, where that means more time
you can enjoy outdoors and activities with families. Studies
also show the potential for reduced cardiac issues, stroke, and
seasonal depression, reduced robberies, and benefits to the
agricultural and overall economy with an extra hour of
sunlight. This is a common-sense change to simplify and benefit
the lives of Americans, and we have a great opportunity to
finally get this done with President Trump on board to lock the
clock.
I want to thank the Committee for the consideration of the
Sunshine Protection Act. I am optimistic we can get this
passed, signed into law, and finally lock the clock.
Thank you.
The Chairman. Thank you, Senator Scott. You are welcome to
stay if you like, but I know you have a busy schedule, so if
you need to attend other responsibilities, you certainly can do
so. And the game was great, except for the final minutes. I
would have liked to lock the clock with 1 minute remaining.
[Laughter.]
The Chairman. That would have been an excellent idea.
Our first witness this morning is Scott Yates, the Founder
of the Lock the Clock Movement. Mr. Yates started the movement
to remove the biannual chore of changing the clock.
Our second witness is Jay Karen. He is the CEO of the
National Golf Course Owners Association, where he represents
thousands of golf course owners across the country.
Our third witness today is Dr. Karen Johnson, a practicing
sleep medicine physician and professor of neurology at the
University of Massachusetts, Chan School of Medicine, Baystate,
she is here on behalf of the American Academy of Sleep
Medicine.
Our final witness is Dr. David Harkey. Dr. Harkey is the
President of the Insurance Institute for Highway Safety, which
is an organization dedicated to reducing deaths, injuries, and
property damage from motor vehicle crashes.
Mr. Yates, you may give your opening statement.
STATEMENT OF SCOTT YATES, FOUNDER,
LOCK THE CLOCK MOVEMENT
Mr. Yates. Thank you so much, Chairman Cruz, Ranking Member
Blunt Rochester, and members of the United States Commerce
Committee. Thank you for inviting me--thank you for inviting me
here today.
Allow me to start with a hypothetical. Imagine two people
commit the exact same crime on the exact same day, and they are
the same in every way. But today, one of them is out of prison,
and one of them remains behind bars.
What is the difference? The second man was sentenced on the
Monday after we spring forward into Daylight Saving Time.
Researchers at the University of Washington reviewed every
criminal sentence handed down in America over an 11-year
period, and found the single harshest day of sentencing of the
whole year was that Monday in March, when judges, like all of
us, had been jolted awake an hour earlier than their bodies had
been expecting.
That one seemingly harmless Government mandate, dialing our
clocks back one hour means some people received harsher
sentences than they otherwise would.
The harm does not stop there. Both of your opening
statements alluded to all of the problems that we have, and
peer-reviewed studies consistently show that heart attacks go
up, strokes, car crashes, even miscarriages spike in those days
following the spring switch.
A study from the University of Vienna found deaths,
overall, just increase by 3 percent in those couple of days
after the change. Medical errors go up, diabetics lose glucose
control, crime goes up. Just yesterday, the Journal of
Neurology published a report saying that more people get
migraines in the days after the time change.
And why do we do this; for the farmers? No. The story about
the farmers was always just a myth that was created as a PR
stunt by a retailer in Boston who wanted more daylight for
shoppers to have more time to shop. We thought it would sound
better if we said it was for the farmers.
If changing the time twice a year is so deadly and such an
outdated relic, why have not we fixed it yet? It is probably
because of this issue we face about whether we should lock into
permanent daylight or permanent Standard Time. I have seen
countless polls, and I have talked to thousands of people about
this. Most people do not actually prefer one or the other that
much. They just want to stop the switching. There are valid
arguments for either permanent choice.
So what should Congress do? What should this committee do?
My name is Scott Yates. I have been reading, writing, and
testifying about this for nearly a decade, and I have this
recommendation: Lock the clock, as this bill says, but after a
2-year implementation. If we wait until 2027, we will continue
to allow states to opt out and opt into Standard Time, just as
Hawaii and most of Arizona have done.
This is fundamentally a states-rights issue and a geography
issue. Consider Indiana, Indiana, Indianapolis is roughly the
same latitude as New York City, but about 700 miles west. For
Congress to force Hoosiers to walk, to go to work and school in
the dark only to accommodate barbecues in New York City seems
rude. But as the Commerce Committee, you do have an interest in
promoting a stable and predictable environment for commerce.
That is why I suggest, Congress establish a firm date,
2027, to permanently end the clock changing nationwide. States
would then have ample time to decide if they want to remain in
Daylight Saving Time or opt out and pick Standard Time. They
would not have the option to continue the deadly twice-yearly
switching.
With clear Federal guidance, schools can evaluate and pick
their own bell times. Businesses can plan confidently, free
from the confusion caused by time changes. And states would
even have time to hold elections to let the people decide
directly.
I started my remarks with that study about the judges, the
reason researchers could that, and find so many other ways that
the time change is harmful is DSC creates what scientists call
a natural experiment. Scientists can compare real-world results
about what happens when the time changes.
Interestingly, in traditional experiments with lab rats,
scientists are careful not to change the clocks for Daylight
Saving Time for the rats because it is too disruptive.
So my closing question for you today is this: At long last,
can we treat our citizens with the decency that we treat our
lab rats?
Thank you. And I am open to any questions.
[The prepared statement of Mr. Yates follows:]
Prepared Statement of Scott Yates, Founder, www.LockTheClock.net
Chairman Cruz, Ranking Member Cantwell, and members of the U.S.
Senate Commerce Committee, Thank you for inviting me here today.
Allow me to start with a hypothetical. Imagine two identical people
commit the exact same crime on the exact same day. They are the same in
every way, but today one of them is out of prison rebuilding his life,
while the other remains behind bars, draining state resources.
What is the difference?
The second man was sentenced the Monday after we ``spring forward''
into Daylight Saving Time. Researchers at the University of Washington
reviewed every criminal sentence handed down in America over an 11-year
period and found the single harshest day of sentencing was that Monday
in March, when judges, like all
of us, had been jolted awake an hour earlier than their bodies
expected. That one seemingly harmless act--dialing back our clocks one
hour--means some people receive harsher sentences than they otherwise
would.
The harm doesn't stop there.
Peer-reviewed studies consistently show that heart attacks,
strokes, car crashes, and even miscarriages spike in the days following
the spring switch. One study from the University of Vienna found that
overall deaths increased by 3 percent following this annual clock
change. Studies show other problems: Medical errors spike. Diabetics
lose glucose control. Crime goes up. People are less empathetic and
helpful.
And why do we do this? For farmers?
No. The story about farmers was always just a myth, created as a PR
stunt by a retailer in Boston who wanted shoppers to have more daylight
after work. He thought it would sound better to say it was for farmers.
If changing the time twice a year is a deadly, outdated relic, why
haven't we fixed it yet? I suspect it's because we're all too
groggy after the time change to decide. But the real issue is simpler:
we can't agree whether to adopt permanent Standard Time or permanent
Daylight Time.
I've seen countless polls and talked with thousands of people--most
don't strongly prefer one time over the other; they just hate the
switching. There are valid arguments for either permanent choice.
So, what should Congress do?
My name is Scott Yates and I've been reading and writing about this
as a hobby for nearly a decade, and I have this recommendation: Lock
the clock into permanent DST in two years, in 2027, while continuing to
allow each state to opt out and remain in Standard Time if it decides
to do so, as Hawaii and Arizona have already decided.
This is fundamentally a states' rights issue.
Consider Indiana. Indianapolis is roughly the same latitude as New
York City but about 700 miles west. For Congress to force Hoosiers to
commute and send children to school in winter darkness, only to
accommodate barbecues in New York, feels . . . rude.
But as the Commerce Committee, you do have an interest in promoting
a stable and predictable environment for commerce.
That's why I suggest Congress establish a firm date--2027--to
permanently end clock-changing nationwide. States would then have ample
time to decide if they want to do nothing and remain in Daylight Time
or opt out and pick Standard Time. They wouldn't have the option to
continue the deadly twice-yearly switching.
With clear Federal guidance, schools can evaluate optimal start
times and businesses can plan confidently, free from the confusion
caused by time changes. States would even have time to hold elections
to let the people decide directly.
I started my remarks with that study about judges. The reason
researchers could do that--and find in so many other ways that the
time change is harmful--is that DST creates what scientists call a
``natural experiment.'' Scientists can compare real world results about
what happens with the time changes.
Interestingly, in traditional experiments with lab rats, scientists
are careful not to change the clocks for DST. It's too disruptive.
So my closing question for you today is this: At long last, can we
put aside partisanship and take action to treat our citizens at least
as well as we treat our lab rats?
Thank you, and I look forward to any and all questions.
For a full briefing book, a state-by-state analysis, and a summary
of the voluminous research into this topic, please see
www.LockTheClock.net.
The Chairman. Thank you, Mr. Yates, for a very interesting
testimony.
Mr. Karen.
STATEMENT OF JAY KAREN, CHIEF EXECUTIVE OFFICER, NATIONAL GOLF
COURSE OWNERS ASSOCIATION
Mr. Karen. Good morning, everyone. Thank you, Chairman
Cruz, Senator Blunt Rochester, and members of the Committee,
for asking me to enter testimony on behalf of the members of
the National Golf Course Owners Association on a pretty complex
issue.
We are headquartered in Charleston, South Carolina, and
represent approximately 4,000 public courses, private clubs,
municipal courses, and resorts throughout the United States. A
little bit about the golf economy, many elected friends see
golf simply as a game until it is time to talk about taxes,
land use, water, employment matters, tourism, zoning, et
cetera.
What comes into view is a $102 billion industry employing
nearly two million people across 15,000 properties and two
million acres of land so that nearly 30 million Americans can
enjoy a great walk outdoors with strangers, friends, and family
while hitting a little white ball.
Little known fact: 75 percent of golf courses in America
are open to the public, and nearly $5 billion each year is
raised for charitable causes through golf. I also understand
golf outings can be an effective fundraiser for political
campaigns. The health benefits of golf are well documented, so
we tend to vehemently disagree with Mark Twain's assessment of
golf as ``a good walk spoiled''.
Now, about the clock, locking the clock does not change how
much daylight we have, just where it shows up on the clock. For
golf and many outdoor activities, a shift can have significant
economic and wellness implications. Golf thrives on what we
call recreational daylight, the overlap of sunlight and
people's availability to be outdoors.
Americans overwhelmingly prefer evening recreation over
early morning. This is not just about golf, it is about soccer,
jogging, walking, biking, tennis, and so much more. Making
Standard Time permanent would shift 1 hour per day from
recreational to non-recreational daylight. Simplistically, it
trades 8 p.m. for 8 a.m. At golf courses, later hours generate
about 40 percent more revenue per hour than early mornings.
Trading backward would cost the average public golf course
at least 7 to 8 percent of their annual revenue by removing the
best inventory we have on our shelves, which is approximately
37 million rounds of golf, and would cost the industry at least
$1.6 billion or nearly $200,000 per course. This analysis only
includes green fee revenue, and does not include spending on
golf car rentals, merchandise, food and beverage, golf lessons,
and other areas of the business.
Thus, only 7 percent of our members support making Standard
Time permanent. Those who favor Standard Time year-round say
their morning play is more valuable to them than their
afternoon play. These may be resorts that want players off the
course and in the restaurants at a reasonable hour.
Now, making Daylight Saving Time permanent would provide
additional recreational daylight from November to March and
would add an estimated 23 million rounds to the current golf
inventory. This would give the industry a tailwind of about $1
billion, or roughly $250,000 per affected facility. Sixty-four
percent of our members support making Daylight Saving Time
permanent. The status quo, changing of our clocks twice per
year, avoids both the significant downside while forfeiting the
moderate upside.
Twenty-seven percent of golf course owners and operators
support keeping the status quo of changing the clocks. Many
golf courses slow down in the winter and enjoy having some
relief later in the day for their employees with the sun
setting earlier. Or they may have a healthy clientele of older
players who would prefer no disruption to their 7 a.m. tee time
or their eleven o'clock bridge game. Keep in mind all these
figures do not include thousands of private clubs, which would
augment the impacts in both directions by an enormous sum.
In conclusion, the Senate is facing a classic Gordian knot.
There will be winners and losers no matter which way the knot
is cut. But our members clearly prefer Daylight Saving Time and
strongly oppose permanent Standard Time.
We recognize the sleep-related arguments for Standard Time,
but the benefits of extended daylight for physical and mental
health, outdoor recreation, and public safety are significant.
Obesity, depression, and crime all have ties to reduced
daylight and sedentary lifestyles.
So in short, we urge the Senate to avoid the consequences
of permanent Standard Time. We encourage solutions that
preserve evening daylight for golf, for health, for recreation,
and local economies.
Thank you.
[The prepared statement of Mr. Karen follows:]
Prepared Statement of Jay Karen, Chief Executive Officer,
National Golf Course Owners Association
Thank you, Chairman Cruz, Ranking Member Cantwell and members of
the Committee for allowing me to enter testimony on behalf of the
members of the National Golf Course Owners Association. I sincerely
appreciate the time you are setting aside for a discussion about a
complex and consequential matter.
My name is Jay Karen, Chief Executive Officer of the National Golf
Course Owners Association. NGCOA, headquartered in Charleston, South
Carolina, represents over 4,000 small businesses throughout America and
serves as a vital resource for owners, operators, and general managers
of various types of golf facilities, including privately-owned public
courses, private clubs, municipal courses and resorts. The NGCOA
provides business-critical information, education, networking
opportunities, and advocacy to help our members and the greater
industry operate their golf facilities efficiently and sustainably.
Golf as Part of the U.S. Culture, Land and Economy
While golf is often seen as a game enjoyed by a small, yet
passionate group of people, golf has long been entrenched in the fabric
of American society as one of the Nation's leading participation
sports. In addition to our rich history, both at the professional and
recreational levels, golf is a dynamic, growing and evolving industry
that's impacting the broader United States economy in a wide variety of
ways.
A few tidbits about the golf industry:
28.1 million Americans played golf in 2024 on over 15,000
golf courses in the United States, laid out across 2 million
acres of cared-for land (about the size of Delaware and Rhode
Island combined), of which nearly 80 percent of golf courses
are public access. Golf's goodness was showcased during the
most difficult COVID years, as millions of people flocked to
the Nation's courses for the very first time for much-needed
outdoor recreation.
Golf is an activity and business with a large economic
footprint that spurs millions to travel, make purchases, and
build and buy houses connected to golf. The business of golf
drove $101.7 billion in economic activity throughout the U.S.
in 2022, an increase of 20 percent over 2016. Golf tourism
overall is the second-biggest economic driver in the industry,
with golfers generating over $31 billion in travel-related golf
expenditures within the U.S. Today, golf has an extended
economic impact of over $226 billion, providing 1.65 million
Americans with quality employment opportunities.
Golf leads all other sporting industries in charitable
giving, raising close to $5 billion through nearly 150,000
charitable golf events at more than 80 percent of all golf
courses. Golf also tends to be an effective fundraiser for
political campaigns!
Golf provides valuable green space, as trees and turfgrass
at courses improve air quality by producing oxygen and trapping
pollutants, thus preventing them from reaching groundwater
supplies. U.S. golf courses, which also serve as sanctuaries
for a wide variety of plants and animals, continue to exhibit
dramatic input reductions, savings, and technological
advancements when it comes to environmental sustainability.
Perhaps most notable is the industry's management of its most
precious resource--water--with usage at golf courses dropping
29 percent since 2005.
Golf delivers value in ways beyond jobs, revenue, taxes, and
multiplier effects. Golf is a lifestyle, a community asset, and
a positive contributor to physical, mental and social wellness.
Playing golf offers significant health benefits by promoting
physical activity, mental wellness, and social connection. A
typical 18-hole round involves walking 4-6 miles and burning up
to 2,000 calories. Studies show golfers have a 40 percent lower
mortality rate than non-golfers of the same age. The sport also
supports mental health, particularly for adults aged 35-49, who
report using golf as a way to reduce stress and recharge. In
2022, 97 percent of U.S. golf facilities hosted programs to
expand recreational access, underscoring golf's role as a
community wellness asset. Golf combines exercise, nature, and
friendship into a sustainable lifelong activity.
Day in the Life of a Golf Course Operator--Sun-Up to Sun-Down
A golf course operator's day starts before dawn, coordinating with
maintenance crews and reviewing the tee sheet and weather. As players
arrive, they oversee operations, monitor pace of play, and handle early
food and beverage service. Midday brings office tasks, course checks,
and managing staff or guests. Afternoons shift toward twilight play,
lunch traffic, and planning upcoming events or communications. Evenings
focus on closing duties, cart returns, and prepping for the next day.
It's a fast-paced blend of hospitality, logistics, and fieldwork,
balancing customer experience, team management, and revenue across
changing daylight, weather, and play patterns. No two days are ever the
same.
Sunrise and sunset directly shape a golf course operator's daily
play window, staffing needs, and revenue potential. Tee times are
scheduled based on available daylight, with early starts shortly after
sunrise and final rounds finishing at sunset. Some courses, like Pebble
Beach Golf Links, even have lights in the trees on the finishing green
to accommodate golfers trying to squeeze in every last bit of play.
Seasonal shifts in daylight affect how many rounds can be played,
staffing schedules, and the timing of events or maintenance. Operators
use this information to plan twilight pricing, ensure safety, and
optimize food, beverage, and cart operations. In short, daylight hours
are the framework for nearly every operational and financial decision
on the course, impacting both the guest experience and the bottom line.
Seasonal changes in sunrise, sunset, and weather, especially frost,
significantly impact how golf operators plan each day. In winter, even
if sunrise is technically around 7:30 AM, play may be delayed until
9:00 or later due to frost, which can damage turf if disturbed. This
reduces the number of playable hours and limits tee time availability.
As a result, operators often start later, compress the tee sheet, and
reduce staffing. In contrast, summer offers long days with early
sunrises and late sunsets, allowing more tee times, twilight play, and
higher revenue potential. Maintenance also adjusts seasonally--crews
may need to shift schedules to prepare the course before first light in
summer, while winter prep happens in a tighter window. Event planning,
F&B hours, and dynamic pricing models must all be adapted to the
season's light and weather. In short, seasonal daylight and frost risk
are critical variables in maximizing playability, revenue, and turf
health.
Recreational Daylight--The Industry's Lifeblood
We know that ``locking the clock'' doesn't increase or decrease the
number of daylight hours for any service provider in any geographies
around the US; it simply changes where that daylight occurs on our
clocks. Why does this matter to golf? Golf relies on what we call
``Recreational Daylight,'' which are the hours of the day that line up
with the sun's light and people's general availability to be outside to
enjoy recreational activity. Historically people are inclined to pursue
recreation and outdoor activities at a higher rate for ``after-dinner''
than ``before-breakfast'' daylight. Proposed changes to ``locking the
clock'' would have the following effect for golf:
Making Standard Time permanent would shift one hour per day
for every course in the country (in their respective season
lengths) from recreational to non-recreational daylight (i.e.,
trades 8PM for 8AM).
Making Daylight Saving Time permanent would provide
additional recreational daylight hours for dates in November to
March. Two distinctions: Northern facilities wouldn't benefit
as much, because these are non-season months due to temps/snow,
etc, and these months are also peak season for the snowbird
locations such as FL and AZ
Latitude matters in golf relative to how daylight length varies
during the year. Perhaps the best way to explain this is to look at the
daylight length at June summer solstice in northern latitudes vs. a
south U.S. benchmark:
Miami, FL (benchmark)--13 hrs 45 mins of daylight
Minneapolis, MN--15 hrs 37 mins of daylight (almost 2 hours
more!)
Seattle, WA--15 hrs 59 mins (+ 2 hrs)
Sioux Falls, SD--15 hrs 36 mins (+ 2 hrs)
East Lansing, MI--15 hrs 21 mins (+1.5 hrs)
Buffalo, NY--15 hrs 21 mins (+1.5 hrs)
Boston, MA--15 hrs 17 mins (+1.5 hrs)
In a formula that adjusts for weather, this means that a course in
Minneapolis has room for 50+ more golfers per day than Miami on the
same date. The Minneapolis course will continue to have more daily
capacity than a course in Miami through the autumnal equinox in
September. This relationship plays out across the northern U.S.
Northern courses benefit from the annual daylight
distribution naturally.
This is also a factor fueling why golf participation is
significantly higher in northern vs. southern states.
Golf courses in general generate higher revenue in later-day vs.
early-morning hours. Based on analyzing a range of courses and their
Point of Sale (PoS) data for revenue by hour, the distribution below
illustrates revenue as an average representation:
Afternoon and evening daylight revenue is approximately 40 percent
higher than before-lunch hours for the average golf facility. Hence,
trading-backwards (eliminating DST) is going to cost the average
operator about 7-8 percent of their annual revenue.
Here is a look at the impact--either direction--on approximately
8,000 public, regulation-length golf courses in the United States. This
economic picture only includes the gain or loss in green fee revenue,
and does not include the impact on spending on golf cart rental,
merchandise, food and beverage, golf lessons and other areas of the
business. Keep in mind this does not include thousands of private
clubs, which would augment the impacts in both directions.
Making Standard Time Permanent would cost all states golf
revenue to the tune of $1.6B or 7.5 percent of their total
annual green fee income, or approximately $162,000 per course.
Making Daylight Saving Time permanent gives the industry
about half that increment of a tailwind of $1B or 4.6 percent
of green fee income, or approximately $250,000 per facility.
Leaving the clock changing as-is obviously avoids both the
significant downside while forfeiting the moderate upside.
Daylight Saving Time--Industry Sentiment
83 percent of NGCOA course owners and operators surveyed feel a
permanent change to Daylight Saving Time would benefit the overall
success and viability of their businesses, though a lesser 64 percent
support making Daylight Saving Time permanent. Our assumption is that
the gap represents those who don't believe the change and related
disruptions to business and lives are worth it.
To illustrate additional complexities of this, golf course
superintendents employed at golf courses report only 40 percent of
their surveyed members feel a move to permanent DST would benefit the
success and viability of their work, with 33 percent being unsure and
27 percent saying it would not be helpful.
Below are direct comments on Daylight Saving Time from industry
practitioners:
As an owner-operator of the largest private country club in
Indiana, staying on Daylight Saving Time is the best for all
outdoor activities. Whether it's pickleball, golf, outdoor
dining, boating, walking, etc., people use more time in the
evening than in the morning. When I moved to Indiana 12 years
ago, one of my favorite intangibles was the amount of daylight
in the evenings. You can play golf in Indiana until 9:30.
That's amazing and it means that members are playing 18 holes
well past the traditional end of the workday.
Even though we are in the far western portion of the Eastern
time zone, I still wish I had even more daylight in the
evenings and I dread when we go back to Standard Time in
November. It's the end of February, and we can be outside until
6:30. I wish we were on Daylight Savings time today and I could
be outside until 7:30 on this 60-degree, February day.
As a golf teacher, I am able to teach the public after they are
done with their workday, therefore extending my ability to
generate revenue. However, due to maintenance, I am unable to
teach in the mornings.
We are in the Central Time Zone but within 10 miles of Eastern
Time. In the winters, it gets dark here at 4:00 pm. If you have
a long frost delay, it can really limit the number of tee times
that could finish 18 holes before dark.
At our daily fee municipal golf course, we feel as if going to
permanent Daylight Saving would be more beneficial in the long
run to our revenue stream based on the amount of play after
people get off of work. The maintenance crew's working time
would be the same (they start working 1 hour before sunrise).
Standard time would take golfers away after work and we do not
see many people showing up way early to get their round in.
Permanent Daylight Saving Time is a big positive for golf and
other recreation activities including youth and adult baseball,
soccer, football, tennis, pickleball, etc. More outdoor
recreation activities occur in the evening. More evening light
increases participation and revenue while also decreasing
lighting expenses at outdoor fields.
Evening golf generates more after work activity including
serving dinner. We would align our morning shifts with new
sunrise times. Early morning players might be put off by
starting later, but they will adjust. These are generally the
lowest revenue players. I am all in on Permanent Daylight
Saving Time.
Having an extra hour of daylight for the evening hours provides
us with more revenue opportunities than opening the tee sheet
earlier. We have many more golfers who prefer to play 9-holes
after work than those who would come at say 5:00-5:30 am.
Standard Time--Industry Sentiment
9 percent of NGCOA members feel a permanent change to Standard Time
would benefit the overall success and viability of their businesses,
and 7 percent support making Standard Time permanent. While some course
owners feel Standard Time would support the morning-heavy businesses
they run, most respondents feel a move to permanent Standard Time would
negatively impact their ability to generate revenue, to maintain
optimal conditions on the course, to have reasonable working hours for
their employees and their ability to provide safety and security at
their businesses.
[GRAPHIC NOT AVAILABLE IN TIFF FORMAT]
To illustrate additional complexities of this, golf course
superintendents report only 19 percent of their surveyed members feel a
move to permanent Standard Time would benefit the success and viability
of their businesses, with 35 percent being unsure and 46 percent saying
it would not be helpful.
Comments on Standard Time from industry practitioners:
We are in a resort vacation area and our busiest times are
mornings. Most visitors have evening dinner or other plans.
Morning help is also easier to find than evening help.
I am unsure how changing to DST would affect our business, as
we don't play golf in the winter. However, moving to ST would
significantly negatively impact our business. We have a
significant amount of late afternoon play. No-one will want to
play at 4 am, but a number of people play at 6 pm and wouldn't
finish before dark if ST was implemented.
We are providing golf during DST under the current system. So
in MN it would offer no change to the golf season. However,
Standard Time would be terrible for MN golfers. It already is
light so early in the summer here (with DST) that taking away
that extra hour of evening golf would be no good. We don't need
it to be light at 4 AM under the Standard time system.
Although ST would allow some courses to have grounds
maintenance start earlier, many courses may not be able to take
advantage of the earlier start due to local noise ordinances.
When working a 12-month calendar, having earlier leave times at
the end of the day is needed. Going home later will make hiring
more difficult if it is for extended time. The winter months
are a needed break and allow employees to spend more time with
their families.
Permanent Standard time would cause income loss that would be
devastating to our public course!
A change to Permanent Standard Time would devastate the revenue
we are able to generate. I am currently able to sell early
morning tee times, then host a late-morning golf outing and an
evening after-work golf league. Losing an hour of evening light
would only be able to sell it twice.
Standard Time would be a disaster for golf & outdoor
recreation. If we lock into Standard Time year-round, here's
what we're facing:
4:30 AM sunrises that no one benefits from.
An impossible hiring situation for maintenance crews
starting at 3:30 AM.
Tee sheets with massive gaps in the morning and no
twilight rounds to make up for it.
Leagues, tournaments, and evening events canceled or
severely limited.
A massive economic hit--not just to golf, but to all
outdoor recreation and tourism.
If we had permanent Standard time it would affect our ability
to get the maintenance out early in the morning due to the
timing of the local noise ordinances. We may actually lose some
of those morning times because we would have to start later in
the day. The one positive I would see in permanent Standard
time is being able to get golf shop and cart staff home a
little earlier. Here in Idaho it is light until almost 10 pm in
June/July and cart staff especially can be here until 11 pm.
Going to a permanent DST would reduce my facility's revenue by
over $144,000 by eliminating my first hour of tee times, 7am to
8 am. Additionally, adjusting maintenance schedules to avoid
working in the dark is not desirable.
The high fixed costs of maintaining a golf course (or any
business) would remain the same whether or not we are on
standard time or daylight savings time. A typical 18 hole golf
course in Michigan budgets approximate 50 percent of their
overall expenses to go to course maintenance. So with that lost
revenue, and the same fixed costs for a business where does
that leave a business to cut? The job impact in Michigan from
the golf industry is 60,000! How will that affect the economic
health of Michigan?
Status Quo--Industry Sentiment
27 percent of NGCOA members support keeping the current status of
changing the clocks twice per year. And as we identified previously,
there is a 19 percent gap between those who say Daylight Saving will
benefit their business and a desire to actually lock the clock on DST.
It can be interpreted that between a quarter and one-third of our
members would prefer that we keep changing the clocks twice per year.
Many golf courses in areas that slow down in the winter and receive
modest play enjoy having some relief later in the day for their
employees with the sun setting earlier. Thus, many enjoy the changing
of the clocks with the changing of the seasons for workplace culture
benefits.
Comments on Status Quo from industry practitioners:
Since we are not open for golf in the winter months, switching
to DST permanently would not have much effect on our operation.
Switching to ST would not benefit us as we would not start
earlier in the morning, and would lose time in the evening for
golf revenue.
DST in the winter would result in not opening until well after
10:00 on certain days due to frost. Thus likely causing a
significant loss of morning rounds (seniors) in the winter
without any gain in the evening due to sunset at 6:00 (not
enough time for golf after work). ST in the summer would
obviously significantly impact league and evening play without
an offsetting gain in the morning with sunrise being before
5:00 a.m. for much of the summer. Our best scenario is the
current system of switching between DST & ST.
For the Florida golf industry, a change to permanent Daylight
Saving time would cost us lots of revenue as it would be darker
and longer in the winter mornings. This is the time of year
that Florida clubs make all or most of their money. Golfers do
not play in the evening in the winter, so we would see no
additional revenue during the winter months. The status quo
makes the best sense for the Florida golf industry.
This issue is far bigger than golf. It's also for the safety of
children so they don't have to go to school in the dark in
winter. Anyone who puts business profitability over the safety
of American children is, in my opinion, on the wrong side of
history. Also, to all of the people who want to eliminate the
practice of changing clocks twice a year. . . . . why? What
legitimate reason do they have other than they don't like it?
Making DST permanent would bring in more revenue in the short
term. However, costs would also increase, and employees' work/
life balance would also be affected. Evening times are great
for those with families and family commitments. Adding more
sunlight hours during this time would affect that. I don't see
many clubs adding additional staff, even if their revenue
streams increase.
Conclusion
The golf industry is acutely aware of how making potential changes
to the clock by eliminating either Daylight Saving Time or Standard
Time is a modern-day Gordian Knot for lawmakers. There will be winners
and losers no matter which way the knot is cut. Data and sentiment from
the golf industry, though, reveal a clear favorability toward permanent
Daylight Saving Time. Overall, permanent DST is viewed as more
beneficial to the golf industry particularly for small business
revenue, accessibility to the game, and general recreational enjoyment
and benefits. Our industry is uniquely tied to daylight, and the number
of playable hours directly affects the number of rounds we can offer,
the staff we employ, and the revenue we generate, especially in the
late afternoon and early evening.
The National Golf Course Owners Association does not take a formal
position on whether Congress should make Daylight Saving Time
permanent, because a healthy portion of our members prefer the status
quo. However, while a very small percentage of our members favor
Standard Time, we want to make it clear that we oppose any proposal to
make Standard Time permanent and year-round for the entire nation.
Permanent Standard Time would result in earlier sunsets for most of the
year, particularly in spring, summer, and early fall, the peak seasons
for most of our industry. This shift would eliminate critical late-day
tee times and reduce twilight leagues, after-work play, food-and-
beverage revenue, cart fees and more. In some regions, 25-40 percent of
daily rounds begin after 3:00 p.m. Permanent Standard Time would put
much of that business at risk. Beyond revenue, this would hurt seasonal
employment, fundraising events for charities, and accessibility for
working golfers who rely on evening hours. These economic impacts would
be most severe in states with long seasons and large golf economies,
such as Florida, California, Arizona, and the Carolinas, as well as the
Northern tier, seasonal and golf-dense places like Michigan,
Pennsylvania, New York, New England and the Pacific Northwest.
While we sympathize with some of the sleep-related arguments for
permanent Standard Time, we believe the counterweight of outside
activity in the latter parts of the day provides significant health
benefits that cannot be ignored. Child and adult obesity can be stemmed
through sun-lit play and exercise outdoors. Hikers, joggers and bikers
are at greater safety risk--or may choose not to participate--with
earlier sunsets. The biological benefits of sunlight and related
Vitamin D are well documented, including improved immune functions,
bone health and positive mental health. In short, a reduction in active
hours would likely lead to further health issues caused by a more
sedentary lifestyle. Ample research supports serious crime reduction
being correlated with increased daylight. We would rather see the
Senate favor the status quo over permanent Standard Time.
We ask the Senate to consider the practical and economic
consequences of losing evening daylight. We encourage policymakers to
explore solutions that preserve extended daylight, which supports not
only golf but also greater outdoor recreation, tourism, hospitality,
good health and local economies.
We extend our gratitude to the following people and organizations
for contributing information and insight to our written testimony:
Ronnie Miles, Senior Director of Advocacy, National Golf
Course Owners Association
Thomas Smith, Chief Operating Officer, National Golf Course
Owners Association
Jim Koppenhaver, Principal, Pellucid Corporation
Stuart Lindsay, President, Edgehill Golf Advisors
Greg Nathan, President and CEO, National Golf Foundation
David Lorentz, Chief Research Officer, National Golf
Foundation
Greg McLaughlin, CEO, World Golf Foundation
Chava McKeel, Director of Government Affairs, Golf Course
Superintendents Association of America
The Chairman. Thank you. Dr. Johnson.
STATEMENT OF DR. KARIN JOHNSON, PRACTICING PHYSICIAN AND
PROFESSOR OF NEUROLOGY, UMASS CHAN SCHOOL OF MEDICINE
BAYSTATE--ON BEHALF OF THE AMERICAN ACADEMY OF SLEEP MEDICINE
Dr. Johnson. Thank you, Chairman Cruz, Senator Blunt
Rochester, distinguished Members of the Senate. Thank you for
having me.
My name is Dr. Karin Johnson. As stated, I am a neurologist
and practicing sleep medicine specialist in Massachusetts, and
I am here representing the American Academy of Sleep Medicine.
I want to extend my gratitude to Chairman Cruz for having
this timely committee hearing. In December, President Trump
called to end Daylight Saving Time, and his Make America
Healthy Commission's mandate to reduce chronic diseases,
especially in children, aligns with permanent Standard Time.
Unfortunately, permanent Daylight Saving Time and the Sunshine
Protection Act do the opposite.
So I have three main takeaways. First, the spring clock
change to Daylight Saving Time is bad, but permanent Daylight
Saving Time is worse.
Second, year-round Standard Time is the natural, healthy
choice promoting physical health, mental health, performance,
and safety.
Third, history supports that permanent Standard Time is the
only viable solution to end seasonal clock change.
So let me elaborate. The majority of Americans do
consistently want to lock the clock but have been more
inconsistent about how to ditch the switch. But in March, there
was a new Gallup Poll that just showed a significant shift in
public opinion, with twice as many Americans now supporting
permanent Standard Time over permanent Daylight Saving Time.
Sixty percent of Americans and 80 percent of teens do not get
the recommended amount of sleep, so there is a lot of room to
improve sleep.
Think about how you or your children feel after a bad night
of sleep. Maybe you forgot an important meeting, drifted out of
your lane, eaten that extra bowl of ice cream. I know I have
done those things. You may have struggled to get your teenager
out of bed, or been a little short with your husband.
Now instead, think about how much better you feel and
function after a good night's sleep. Permanent Standard Time
would give more Americans the opportunity to improve their
sleep without even trying. The sun is one of the most powerful
drivers of health and well-being, but the timing of sunlight is
what is critically important. Without enough morning light or
with too much evening light, our circadian rhythms delay. This
disrupts our sleep patterns and our body and brain functions.
Permanent Daylight Saving Time would cause sunrises after 8
a.m. for two to four months every winter, depriving us of this
critical morning light. This is why permanent Daylight Saving
Time would be exponentially worse than seasonal Daylight Saving
Time.
The adverse effects are greatest in our children, our
teenagers, and other night owls whose bodies' clocks already
run late. As discussed, there are many harmful benefits that
occur in the days after this change, especially in the spring,
to Daylight Saving Time, including more strokes and heart
attacks. As highlighted in the prior testimony, brain function
is really affected by sleep. And so, we heard about judges
making harsher statements.
However, these harms do not mean that permanent Daylight
Saving Time would be better. Instead, the later sunrises and
sunsets of Daylight Saving Time lead to higher risks of chronic
diseases including, but not limited to, cancer, diabetes, heart
disease, obesity, and these outweigh the short-term risks of
what happens with the time change.
There is also data that says that permanent Standard Time
also results in better mental health outcomes, including
reducing rates of depression and suicide, this is not
surprising, as morning light and healthy sleep are known
treatments for depression. On the other hand, poor sleep
increases the risk of drug use, alcohol use, and other risk-
taking behaviors.
There are some misconceptions I want to address. As
discussed, permanent Daylight Saving Time does not make days
longer, nor is it the reason why people feel better in the
summer. Instead, permanent Daylight Saving Time is a hidden
mandate to wake Americans up an hour earlier rather--to their
alarm clocks rather than the sun.
If we called it the ``Go to Work an Hour Earlier Act''
rather than the ``Sunshine Protection Act'', no one would be
voting for it. Permanent Daylight Savings Time does not
increase overall exercise levels in the U.S., and even if some
people exercise more, obesity, and heart disease, these chronic
diseases are still more prevalent.
There is no--while darkness comes with health and safety
risks, Daylight Saving Time is not the solution. There is no
data to support that permanent Daylight Saving Time would
reduce overall crime or motor vehicle crashes. Instead, later
sunrises and sunsets are associated with 20 percent more fatal
crashes.
The negative impact of Daylight Saving Time on sleep and
our brain health harms the economy, workers, especially those
with early start times before 8:30, think of your farmers, your
transportation workers, your factory workers are less likely to
be productive and efficient. Workplace injuries rise after the
transition to Daylight Saving Time, and health care spending
increases.
On the other hand, permanent Standard Time improves
academic success in our children with higher test scores. Your
constituents' utility bills will be lower with permanent
Standard Time by reducing heating and cooling costs.
And finally, the U.S. tried and quickly abandoned permanent
Daylight Saving Time twice before, most recently in 1974. It
just does not work. It will not last. For those that are
serious about ending clock changes, permanent Standard Time is
the only viable solution.
Please refer to my written testimony for more details. And
I am happy to look forward to the questions later.
[The prepared statement of Dr. Johnson follows:]
Prepared Statement of Karin Johnson, MD, FAAN, FAASM, Professor of
Neurology, University of Massachusetts Chan School of Medicine-
Baystate, American Academy of Sleep Medicine, Advocacy Committee
Member Co-Chair, Coalition for Permanent Standard Time
Permanent Standard Time: the Naturally Healthy and Lasting Way to End
Clock Change
Chairman Cruz, Ranking Member Cantwell, and Distinguished Members
of the Senate:
My name is Dr. Karin Johnson. I am a practicing sleep medicine
specialist and neurologist at UMASS Chan School of Medicine-Baystate. I
received my undergraduate degree from Harvard University and medical
degree at University of Chicago. I trained in neurology at Brown
University and sleep medicine at Harvard University. My primary focus
is clinical sleep medicine. My research centers on how sleep disorders
and sleep health impact overall health and brain function. My support
for permanent Standard Time stems from my commitment to promoting sleep
health and brain health on a larger scale.
Today, I appear in my personal capacity as a sleep medicine
physician, a member of the American Academy of Sleep Medicine Advocacy
Committee and the Co-Chair of the Coalition for permanent Standard
Time. This coalition includes the American Academy of Sleep Medicine,
Sleep Research Society, Society for Research on Biological Rhythms,
National Sleep Foundation and the non-profit Save Standard Time. Please
note that the views expressed in my testimony do not necessarily
reflect those of my employer.
Thank you for inviting me to speak at this important hearing. I
commend this committee for thoughtfully considering changes to Daylight
Saving Time (DST), particularly in regard to its impact on the health
and wellbeing of the American people. I echo President Trump's call to
end Daylight Saving Time.\1\ Permanent Standard time aligns with his
executive order establishing the Make America Healthy commission to
protect the wellbeing of the Nation and especially of our children. The
Sunshine Protection Act for permanent Daylight Saving Time would do the
opposite.
---------------------------------------------------------------------------
\1\ (Bink, 2024)
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In my professional opinion and that of other scientific and medical
societies including but not limited to the American Academy of Sleep
Medicine, American Academy of Neurology, and the National Safety
Council, permanent Standard Time offers multiple positive benefits for
physical and mental health, safety and performance.
My testimony will focus on:
1. The harms of the spring clock change to Daylight Saving Time and
the greater risks of year-round Daylight Saving Time.
2. Permanent Standard Time is the natural, healthy choice offering
multiple long-term benefits to physical health, mental health,
safety and performance.
3. History supports year-round Standard Time as the only viable
solution to end clock change.
The majority of Americans have consistently called for an end to
seasonal clock changes. Last month, President Trump held off on action,
stating that he perceived the public as evenly split on which clock
should be made permanent. However, the same week, a national Gallop
poll revealed a significant shift in public opinion with twice as many
Americans now supporting permanent Standard Time (48 percent) over
permanent Daylight Saving Time (24 percent).\2\
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\2\ (Evans & Jones, 2025)
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Sleep Health: A Pillar of Overall Health and Well-being
Consider how you or your children have felt after a poor night's
sleep. Maybe you've missed an important meeting, snapped at your
spouse, drifted out of your lane, skipped the gym, or eaten an extra
bowl of ice cream. You may have struggled to get an overly tired
toddler to behave or have drag your teenager out of bed for school.
Contrast that with how much better you feel and function after a
restful sleep. Permanent Standard Time would help more Americans
experience that improvement by providing a more natural alignment
between our social schedules and the sun's cycle every day of the year.
There is a growing understanding among doctors, educators, athletes
and mental health professionals that sleep is critical but often
underutilized tool for improving overall health. Americans are facing a
sleep deprivation epidemic, with 60 percent of adults\3\ and 80 percent
of teens\4\ not getting the recommended amount of sleep. Even small
improvements in sleep can significantly boost metabolism, mood, immune
function and performance.
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\3\ (NationalSleepFoundation, 2025)
\4\ (NationalSleepFoundation, 2024)
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High-profile athletes, including Tom Brady, Kirk Cousins, Lebron
James, Gabby Thomas, Roger Federer and Justin Thomas have capitalized
on this understanding to improve their performance through sleep
optimization.\5\
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\5\ (Gatto, 2019; Gorman, 2024; Ibach, 2019; Scipioni, 2021;
Sekaran, 2023)
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Clock Time Matters
Good sleep is not just the number of hours, but also the timing and
quality. Human beings are diurnal (not nocturnal); our bodies crave
morning light to wake and evening darkness to sleep. Permanent Standard
Time improves sleep health by aligning our clocks more naturally with
the sun. Standard Time naturally places the sun directly overhead at
noon at the meridian (dotted line) of each time zone. Daylight Saving
Time shifts the clock time so that the sun is overhead an hour later.
[GRAPHIC NOT AVAILABLE IN TIFF FORMAT]
Every cell in our body has a biological clock that synchronizes
with a master clock in the brain, aligning our circadian rhythms to a
24-hour day.\6\ To keep our internal clocks synchronized, most people
need morning light and evening darkness. However, Daylight Saving Time
stresses the body and brain by continually exposing us to the opposite
conditions. Throughout the entire Daylight Saving Time period, our
social schedules are misaligned with our natural circadian rhythms.
This makes it harder to sleep and wake, and it strains metabolic and
neurological functions.
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\6\ Picture adapted from (Saini, Brown, & Dibner, 2015) and (Dijk &
Lockley, 2002)
[GRAPHIC NOT AVAILABLE IN TIFF FORMAT]
The effects of circadian misalignment are familiar to many of us
during flights across time zones. With conventional jetlag, new timing
of sunrise at our destination resynchronizes our internal rhythms to
the local environment within a few days. However, with Daylight Saving
Time our circadian hormones levels (such as the natural morning release
of wakefulness-promoting cortisol) remain more aligned to the sun.\7\
Chronobiologists refer to this condition as ``social jet lag''.
---------------------------------------------------------------------------
\7\ (Hadlow, Brown, Wardrop, & Henley, 2014)
[GRAPHIC NOT AVAILABLE IN TIFF FORMAT]
When our alarms ring at 7 a.m. during Daylight Saving Time, our
bodies still feel like it is 6 a.m. near the time zone meridian. On the
western edge of the time zone, it feels closer to 5:30 a.m.
[GRAPHIC NOT AVAILABLE IN TIFF FORMAT]
When Daylight Saving Time is extended into winter's unavoidably
shorter days, it pushes sunrise in most states past 8 a.m. for three or
more months, and past 9 a.m in some locations. The long deprivation of
crucial morning sunlight is why year-round Daylight Saving Time is
exponentially more harmful than seasonal Daylight Saving Time.
[GRAPHIC NOT AVAILABLE IN TIFF FORMAT]
Adolescents, teens and young adults have the most circadian
disruption from Daylight Saving Time because their body rhythms already
run late.\8\ Any parent of a teenager knows you can't just tell a kid
to go to bed when they aren't tired. This is because before sleep
onset, teenagers have the strongest drive for alertness (in what sleep
scientist call the ``forbidden zone'').\9\ With more evening light
during Daylight Saving Time pushing rhythms even later, most teenagers
are biologically unable to get enough sleep before their morning alarms
ring. This results in an increased number of teenagers trying to catch
up on sleep over weekends,\10\ which is associated with numerous
adverse health and performance outcomes.\11\
---------------------------------------------------------------------------
\8\ (Crowley, Acebo, & Carskadon, 2007)
\9\ (Lavie, 1986)
\10\ (Borisenkov et al., 2017)
\11\ (Castro et al., 2021; Foster et al., 2013; Haraszti, Ella,
Gyongyosi, Roenneberg, & Kaldi, 2014; Levandovski et al., 2011;
McGowan, Uzoni, Faltraco, Thome, & Coogan, 2020; Panev et al., 2017;
Parsons et al., 2015; Phillips et al., 2017; Roenneberg, Allebrandt,
Merrow, & Vetter, 2012)
---------------------------------------------------------------------------
The Harms of the Spring Clock Change to Daylight Saving Time and the
Greater Risks of Year-round Daylight Saving Time
The transition from Standard Time to Daylight Saving Time in the
spring is particularly harmful (see table below), but year-round
Daylight Saving Time is even worse. Our body rhythms never adjust to
the later sunrises and sunsets of Daylight Saving Time. These are
associated with many long-term risks, including higher rates of cancer,
obesity, heart attacks, depression, suicide and fatal car crashes.\12\
Independent reviews of the literature have resulted in multiple
position statements by medical and scientific groups in support of
permanent Standard Time.\13\
---------------------------------------------------------------------------
\12\ (Borisenkov et al., 2017; Gentry, Evaniuck, Suriyamongkol, &
Mali, 2022; Gu et al., 2017; D. J. Reis et al., 2023; T. VoPham et al.,
2018)
\13\ (Crawford et al., 2024; Malow, 2022; Medicine, 2022;
Roenneberg et al., 2019)
---------------------------------------------------------------------------
Health, Safety and Performance Outcomes Worsened by the Spring Clock
Change\14\
---------------------------------------------------------------------------
\14\ (Kantermann, Juda, Merrow, & Roenneberg, 2007; Lahti et al.,
2006) (Kolla, Coombes, Morgenthaler, & Mansukhani, 2021; Medina, Ebben,
Milrad, Atkinson, & Krieger, 2015) (Barnes & Wagner, 2009; Ellis,
Luther, & Jenkins, 2018; Holland & Hinze, 2000; Sipila, Ruuskanen,
Rautava, & Kyto, 2016) (Kountouris, 2020; Manfredini et al., 2019)
(Chudow et al., 2020) (Cho, Barnes, & Guanara, 2017; Gao, Lage, &
Scullin, 2024; Kamstra, Kramer, & Levi, 2010) (Heacock et al., 2022)
(Coate & Markowitz, 2004; Ferguson, 1996; Neumann & von Blanckenburg,
2025; Teke et al., 2021) (O'Connor & Kancheva, 2022; Yule, Krishna,
Rahiri, & Hill, 2016)
------------------------------------------------------------------------
------------------------------------------------------------------------
Sleep disruption Medical errors
Teen sleep deprivation Missed appointments
Strokes Workplace injuries
Heart attacks Human caused wildfires
Atrial fibrillation Medical malpractice payments
Autopsies including sudden infant Harsher judges sentencing
death
In-vitro fertilization rate failure Stock market volatility
Emergency room visits Alcohol consumption
Motor vehicle accidents Athletic performance
Suicide Athletic injuries
------------------------------------------------------------------------
Can We Quantify the Short-term Impact?
------------------------------------------------------------------------
------------------------------------------------------------------------
795,000 strokes /year 15,000 strokes/week. A 3% increase in stroke the
week after the time change 450 more strokes/each spring
------------------------------------------------------------------------
A study by JP Morgan indicates that the spring shift to Daylight
Saving Time is associated with increased financial costs, including a
5.9 percent spike in healthcare spending in Los Angeles compared to
Phoenix in the month after the change. (Arizona stays on Standard
Time).
Small Sleep Improvements, Big Impacts
We know from later school start time policies that small changes in
sleep health can lead to meaningful benefits to health, mood, safety
and performance.\15\ Permanent Standard Time would allow these benefits
without requiring drastic changes. Whereas permanent DST would change
the recommended school start time from 8:30 a.m. to 9:30 a.m.
---------------------------------------------------------------------------
\15\ (K. Wahlstrom et al., 2014) (Later; McKeever, Dodd, &
O'Sullivan, 2022) (K. L. Wahlstrom, Berger, & Widome, 2017) (Danner &
Phillips, 2008; Temkin, Princiotta, Ryberg, & Lewin, 2018)
---------------------------------------------------------------------------
Daylight Saving Time Impacts Certain Populations More
Teenagers and other night owls
People with work or childcare start times before 8:30 a.m.
(the median work start in the United States is 7:55 a.m.)
People who live on the western edge of time zones
Corrections of Common Misconceptions
Daylight Saving Time does not make days longer
Summer benefits health and mood due to its longer daylength
and warmer weather, not due to Daylight Saving Time.
Studies fail to show permanent Daylight Saving Time
significantly increases exercise in the United States.\16\ Even
if some people exercise more, the risk of chronic health
disorders increases due to sleep and circadian disruption.
---------------------------------------------------------------------------
\16\ (Goodman, Page, Cooper, & International Children's
Accelerometry Database, 2014; Zick, 2014)
While darkness may come with health and safety risks,
Daylight Saving Time is not the solution, because sleep and
---------------------------------------------------------------------------
circadian disruption cause even more health and safety risks.
Permanent Standard Time results in fewer long-term mental
health disorders, reducing seasonal depression\17\ and
suicide.\18\ A 2025 study found that artificial delay of
sunrises and sunsets is associated with a roughly 6 percent
increase in the incidence of depression.\19\ This is not
surprising, as morning light and healthy sleep are known
treatments for mental health disorders.
---------------------------------------------------------------------------
\17\ (Borisenkov et al., 2017)
\18\ (D. J. Reis et al., 2023)
\19\ (Argys, Averett, & Yang, 2025)
There are no data to support that permanent Daylight Saving
Time would reduce year-round crime or motor vehicle crashes,
there are only data to support short-term effects after the
clock change. Moreover, a recent study spanning eleven years of
data across the Nation showed that artificial delay of sunrises
and sunsets is associated with 21.8 percent more fatal
crashes.\20\ Furthermore, sleep disruption is associated with
drug and alcohol use, poorer judgment, more risk-taking
behaviors and greater aggression--all of which are risk factors
for criminality and for vehicular accidents.
---------------------------------------------------------------------------
\20\ (Gentry et al., 2022)
Farmers historically have supported permanent Standard Time.
Many aspects of farm and ranch work remained aligned to the
sun, for example, the time dew clears from the fields and the
circadian rhythms of farm animals. Animals are also impacted by
clock changes, becoming less active after sunrise after the
transition to Daylight Saving Time.\21\ Rural areas were
particularly affected in 1974 when people were made to commute
to work in the dark and send their kids to school in the dark
during permanent Daylight Saving Time.
---------------------------------------------------------------------------
\21\ (Nagendran, Li, Samson, & Schroeder, 2025)
Night owls often express a preference for Daylight Saving
Time, believing later sunrise and sunsets align better with
their natural rhythm. However, their circadian rhythms are more
sensitive to the delayed light exposure of Daylight Saving
Time.\22\ When night owls miss morning light or get exposed to
too much light in the evening, their internal body clocks have
a greater degree of misalignment with the external environment
than people with earlier sleep timing preferences, or
``chronotypes''. This misalignment is called ``social jet
lag'', and it is associated with chronic health risks,
including higher rates of obesity, depression, and
cardiovascular problems.\23\ Night owls are also more likely to
experience greater sleep loss after the seasonal clock change
to Daylight Saving Time.\24\ One of the most effective medical
treatments for helping night owls to wake on time for work and
school is high-intensity morning light exposure.\25\ Morning
light helps reset their circadian rhythms, making it easier to
wake up earlier and feel more aligned with the typical work
day. Permanent Standard Time would not only help night owls
rise without the harshness of an alarm clock, but also support
healthier sleep cycles, making it easier for them to fall
asleep earlier. The mental and physical health benefits of
permanent Standard Time are greater for night owls.
---------------------------------------------------------------------------
\22\ (C. Reis et al., 2023)
\23\ (Farkova, Smotek, Bendova, Mankova, & Koprivova, 2021)
(Fischer & Lombardi, 2022) (Juda, Vetter, & Roenneberg, 2013) (McMahon
et al., 2019) (Owens, Dearth-Wesley, Herman, & Whitaker, 2019)
(Merikanto et al., 2013) (Urban, Magyarodi, & Rigo, 2011) (Wong,
Hasler, Kamarck, Muldoon, & Manuck, 2015)
\24\ (Putilov, Poluektov, & Dorokhov, 2020)
\25\ (Narala, Ahsan, Ednick, & Kier, 2024)
The negative impact of Daylight Saving Time on sleep harms
the economy. Workers, especially those with early start times
before 8:30 a.m., are less likely to be productive and
efficient during periods of circadian misalignment.\26\
Permanent Standard Time improves academic success with higher
high school test scores than even seasonal Daylight Saving
Time.\27\ Additionally, health care bills and work-place
injuries rise after the transition to Daylight Saving Time and
utility bills, heating and cooling costs are lower during
Standard Time.\28\
---------------------------------------------------------------------------
\26\ (Giuntella & Mazzonna, 2019)
\27\ (Gaski & Sagarin, 2011)
\28\ (Barnes & Wagner, 2009; Depalo, 2023; Farrell, Narasiman, &
Ward Jr., 2016; Kotchen & Grant, 2011)
---------------------------------------------------------------------------
Historical Context and the Case for Permanent Standard Time
Prior to 1966, most states enjoyed permanent Standard Time for
eight decades outside of wartime. It was only after the Uniform Time
Act was enacted, with its prescribed adherence to seasonal Daylight
Saving Time, that most states began to observe biannual clock changes.
Permanent Daylight Saving Time has been tried before, notably during
World War II and the 1974 Oil Crisis, but it was quickly abandoned due
to its unpopularity and negative effects. Permitting states to adopt
permanent Daylight Saving Time could create significant economic and
logistical issues, especially for industries like transportation and
broadcasting. Prevention of such problems was why the Uniform Time Act
of 1966 was enacted.\29\ For example, it has been estimated that
companies spend $350 million dollars in computer fixes to deal with
Daylight Saving Time transitions.\30\ Thus, a national or at least
regional approach, with adequate preparation time and careful choice of
the most sustainable permanent clock, is preferred.
---------------------------------------------------------------------------
\29\ (United States. Congress. House. Committee on Interstate and
Foreign Commerce., 1973)
\30\ (Lohr, 2007)
---------------------------------------------------------------------------
A recent review disproves the claimed energy savings of Daylight
Saving Time,\31\ including studies showing utility bills increase
during Daylight Saving Time, due to higher heating and cooling
costs.\32\
---------------------------------------------------------------------------
\31\ (Neumann & von Blanckenburg, 2025)
\32\ (Farrell et al., 2016; Kotchen & Grant, 2011)
---------------------------------------------------------------------------
Only about 70 countries currently have seasonal Daylight Saving
Time policies, with most countries following year-round Standard Time.
Mexico most recently adopted year-round Standard Time in 2022.
Permanent Standard Time has been shown to be a lasting option, whereas
permanent Daylight Saving Time in the United States and elsewhere has
been unsustainable.
Conclusion
In summary, while seasonal Daylight Saving Time allows for more
evening light, it forces unpopular, costly and harmful biannual clock
changes.
Permanent Standard Time offers a balanced approach that aligns with
our natural circadian rhythms, improves health, safety, and
productivity, and eliminates the harmful and unpopular effects of
seasonal clock changes. While Daylight Saving Time may seem beneficial
on the surface, it brings substantial costs to our well-being and
inefficiencies to our economy. I urge this committee to consider the
long-term benefits of adopting Permanent Standard Time.
Additional Information About Seasonal Transition Effects
Studies of motor vehicle crashes after clock changes have shown
varying results,\33\ but one study that analyzed data over ten years
found the spring transition to Daylight Saving Time likely increases
fatal motor vehicle crashes, with a 6 percent rise in fatalities
reported. This risk is most significant in the western edges of time
zones, where circadian disruption is greatest.\34\
---------------------------------------------------------------------------
\33\ (Coate & Markowitz, 2004; Ferguson, 1996; Goodwin, Gonzalez, &
Fontenla, 2024; Neumann & von Blanckenburg, 2025; Teke et al., 2021)
\34\ (Fritz, VoPham, Wright, & Vetter, 2020)
---------------------------------------------------------------------------
Hansen et al's often-cited study showed an 11 percent increase in
depression episodes after the fall transition from Daylight Saving Time
to Standard Time, but the rates then decreased over the next two months
during Standard Time. This suggests a short-term worsening after the
change, and a long-term protective effect of Standard Time, despite
shortening day lengths.\35\ However, other types of studies are needed
to inform the long-term effects. For example, one study that compared
permanent Daylight Saving Time to permanent Standard Time found highest
rates of seasonal depression during permanent Daylight Saving Time.\36\
Another study found a 6 percent higher incidence of depression with
later sunrises and sunsets.\37\
---------------------------------------------------------------------------
\35\ (Hansen, Sonderskov, Hageman, Dinesen, & Ostergaard, 2017)
\36\ (Borisenkov et al., 2017)
\37\ (Argys et al., 2025)
[GRAPHIC NOT AVAILABLE IN TIFF FORMAT]
Doleac et al's often-cited study reported a 27 percent drop in
robberies occurring in the two hours around and after sunset after the
spring Daylight Saving Time to Standard Time transition.\38\ Their data
supports an acute effect of light on decreasing robbery rates, but it
is unlikely crime rates would be lower overall with permanent Daylight
Saving Time when sleep factors are taken in account. In fact, their
data shows more crimes were committed during DST period, per their
table below.
---------------------------------------------------------------------------
\38\ (Doleac & Sanders, 2015; Munyo, 2018)
[GRAPHIC NOT AVAILABLE IN TIFF FORMAT]
Data Informing the Long-term Impact of Clock Time Choice
Sleep Effect of 1-hour Earlier Sunset and Sunrise on Working Adults in
US\39\
---------------------------------------------------------------------------
\39\ (Giuntella & Mazzonna, 2019)
------------------------------------------------------------------------
Social Factor Average Daily Sleep Gain
------------------------------------------------------------------------
Employed Adults 19 minutes
Work-start before 7 a.m. 36 minutes
Parents of children with school start 27 minutes
time before 8 a.m.
Work-start after 8:30 a.m. without No change
children
------------------------------------------------------------------------
Social Jet Lag (sleeping in >2 hours later on weekends) is less
common in adolescents with permanent Standard Time\40\
---------------------------------------------------------------------------
\40\ (Borisenkov et al., 2017)
---------------------------------------------------------------------------
Exercise
No change in average exercise in U.S. adolescents with later
sunsets\41\
---------------------------------------------------------------------------
\41\ (Goodman et al., 2014)
Comparing Arizona to nearby states, Daylight Saving Time
doesn't increase adult physical activity, but it may change the
time of day that exercise occurs\42\
---------------------------------------------------------------------------
\42\ (Zick, 2014)
---------------------------------------------------------------------------
Health
Childhood obesity rates decrease with less social jet
lag\43\
---------------------------------------------------------------------------
\43\ (Liang et al., 2022)
Fewer cases of being overweight or obese with 1-hour earlier
sunrise/sunset\44\
---------------------------------------------------------------------------
\44\ (Giuntella & Mazzonna, 2019)
More sun-aligned clock time is associated with lower rates
of cancer, heart attacks, coronary artery disease and
diabetes\45\
---------------------------------------------------------------------------
\45\ (Giuntella & Mazzonna, 2019; Gu et al., 2017; Trang VoPham et
al., 2018)
Health care costs are lower with both stopping clock
transitions and more sun-aligned clock time\46\
---------------------------------------------------------------------------
\46\ (Co., 2016; Giuntella & Mazzonna, 2019)
---------------------------------------------------------------------------
Mental Health
While people can feel mood brighten when going out in the
sun, the timing of light and quality of sleep are more
important for long-term mental health
Morning light-box treatment improves mood;\47\ Standard Time
naturally provides morning light
---------------------------------------------------------------------------
\47\ (Terman, 2007)
6 percent higher incidence of depression with later sunrise
and sunset\48\
---------------------------------------------------------------------------
\48\ (Argys et al., 2025)
1-2/100,000 more suicides with later sunrise and sunset;\49\
more aligned clocks could prevent about 5,000 suicides per year
---------------------------------------------------------------------------
\49\ (D. J. Reis et al., 2023)
Sleep and circadian disruption is associated with increased
substance abuse\50\
---------------------------------------------------------------------------
\50\ (Hasler et al., 2017; Hasler et al., 2022)
Winter depression rates are highest during permanent
Daylight Saving Time and lowest during permanent Standard
Time\51\
---------------------------------------------------------------------------
\51\ (Borisenkov et al., 2017)
---------------------------------------------------------------------------
Real-world Trials Abroad
[GRAPHIC NOT AVAILABLE IN TIFF FORMAT]
Can We Quantify the Difference Between Permanent DST and Permanent ST?
------------------------------------------------------------------------
------------------------------------------------------------------------
Given 42.9 million adolescents in the United States and prevalence rate
of seasonal depression in adolescents of 1.7-5.5%, a 2.2% difference is
approximately 16,000-52,000 fewer children with seasonal depression
during permanent Standard Time than during permanent Daylight Saving
Time.
------------------------------------------------------------------------
Workplace Performance and Safety
Many studies demonstrate that sleep and circadian disruption
result in worsened brain function, including worsened
concentration, attention, reaction time, decision making and
learning/memory, affecting workplace relationships, performance
and safety\52\
---------------------------------------------------------------------------
\52\ (Barnes, 2012; Barnes, Ghumman, & Scott, 2013; Barnes,
Guarana, Nauman, & Kong, 2016; Barnes, Gunia, & Wagner, 2015; Barnes,
Lucianetti, Bhave, & Christian, 2015; Diaz-Morales & Escribano, 2015;
Gish, Wagner, Gregoire, & Barnes, 2019; Guarana & Barnes, 2017; McGowan
et al., 2020; McGowan, Voinescu, & Coogan, 2016; Panev et al., 2017;
Scullin, Hebl, Corrington, & Nguyen, 2020; Uehli et al., 2014; Wagner,
Barnes, Lim, & Ferris, 2012)
Later sunrises and sunsets are associated with over $600
million per year in lost productivity due to 4 million lost
workdays\53\
---------------------------------------------------------------------------
\53\ (Giuntella & Mazzonna, 2019; Taillard, Sagaspe, Philip, &
Bioulac, 2021)
Professions with earlier work start times or shift work
schedules, including transportation construction, utility,
manufacturing, education and health services, are impacted most
Education
Students living on permanent Standard Time had higher test
scores than those on seasonal Daylight Saving Time\54\
---------------------------------------------------------------------------
\54\ (Gaski & Sagarin, 2011)
Academic performance improves when social jet lag is
lower\55\
---------------------------------------------------------------------------
\55\ (Haraszti et al., 2014)
---------------------------------------------------------------------------
Motor Vehicle Crashes
Despite the protective effect of more light during the
busier evening commute, driving is less safe during Daylight
Saving Time, due to sleep and circadian disruption effects
21.8 percent more fatal motor vehicle crashes occur with
later sunsets;\56\ more aligned clocks could prevent 1,300 more
deaths per year
---------------------------------------------------------------------------
\56\ (Gentry et al., 2022)
Driving simulation testing improves throughout Standard Time
and worsens throughout Daylight Saving Time\57\
---------------------------------------------------------------------------
\57\ (Orsini, Zarantonello, Costa, Rossi, & Montagnese, 2022)
Permanent Daylight Saving Time has the most total commute
time in the dark
[GRAPHIC NOT AVAILABLE IN TIFF FORMAT]
Sunrise Times on Permanent Daylight Saving Time
------------------------------------------------------------------------
First Day with Last Day with
City Sunrise After 8 Sunrise After 8 Latest Sunrise
AM AM
------------------------------------------------------------------------
Anchorage, AK Sept 28 Mar 20 11:16 AM
Atlanta, GA Nov 4 Mar 7 8:44 AM
Boston, MA Dec 6 Jan 31 8:14 AM
Charleston, WV Nov 7 Feb 28 8:45 AM
Chattanooga, TN Oct 29 Mar 10 8:51 AM
Cheyenne, WY Nov 25 Feb 11 8:26 AM
Chicago, IL Dec 1 Feb 4 8:19 AM
Cleveland, OH Nov 1 Mar 2 8:54 AM
Denver, CO Nov 28 Feb 9 8:22 AM
Detroit, MI Oct 27 Mar 6 9:02 AM
Helena, MT Oct 24 Mar 5 9:13 AM
Honolulu, HI every day of the 8:12 AM
year
Indianapolis, IN Oct 19 Mar 13 9:07 AM
Jackson, MS Dec 23 Jan 23 8:03 AM
Kansas City, KS Nov 12 Feb 23 8:39 AM
Madison, WI Nov 22 Feb 12 8:30 AM
Minneapolis, MN Nov 6 Feb 24 8:52 AM
Pierre, SD Oct 17 Mar 12 9:18 AM
Raleigh, NC Nov 23 Feb 17 8:26 AM
Reno, NV Nov 29 Feb 8 8:21 AM
Salt Lake City, Nov 2 Mar 2 8:53 AM
UT
San Antonio, TX Nov 16 Mar 2 8:30 AM
San Francisco, CA Nov 24 Feb 15 8:26 AM
Santa Fe, NM Dec 5 Feb 6 8:15 AM
Seattle, WA Nov 5 Feb 24 8:58 AM
St. Louis, MO Nov 30 Feb 8 8:20 AM
Tallahassee, FL Nov 11 Mar 5 8:36 AM
Trenton, NJ Nov 27 Feb 9 8:22 AM
Wilmington, DE Nov 26 Feb 11 8:24 AM
------------------------------------------------------------------------
[GRAPHIC NOT AVAILABLE IN TIFF FORMAT]
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0300
The Chairman. Thank you very much.
Dr. Harkey.
STATEMENT OF DR. DAVID HARKEY, PRESIDENT,
INSURANCE INSTITUTE FOR HIGHWAY SAFETY
Dr. Harkey. Chairman Cruz, Ranking Member Blunt Rochester,
and members of the Committee, thank you for the opportunity to
share the IIHS research on the road safety implications of
Daylight Saving Time.
When discussing any topic on road safety in the United
States it is important to set the stage. Simply put, we are in
a road safety emergency. Crash deaths have risen nearly 30
percent since 2014, from below 33,000 to more than 42,000 in
2022. Pedestrian crashes in particular have reached crisis
levels, climbing more than 80 percent from their low point in
2009.
Changing the clocks twice a year is relevant to road safety
first and foremost because it affects the amount of ambient
light during peak times for travel. We know that darkness is
associated with increased risk of fatal crashes. We do about a
quarter of our travel at night, but nearly half of motor
vehicle occupant deaths and three-quarters of pedestrian deaths
occur in the dark.
Obviously, adjusting the clock cannot increase the number
of daylight hours but can only shift how they align with work
and school schedules.
Since people travel at all times of day, and the risk
created by darkness varies by road user type, the effects of
these time changes on crashes are complex. The aim of our
recent study was to examine the effect of changes in light
conditions associated with the beginning and end of Daylight
Saving Time. We examined 10 years of fatality data for the 5-
weeks before and after each time change and only considered
crashes between 4 a.m. and 10 a.m., and between 3 p.m. and 9
p.m. Ambient light conditions were calculated using the sunrise
and sunset times corresponding to the geographic coordinates of
each crash.
Crashes resulting in vehicle occupant deaths fell 7 percent
in the 5-weeks after the time change in the fall and increased
12 percent in the 5-weeks after the time change in the spring.
The opposite was true for crashes resulting in pedestrian or
bicyclist deaths. Those crashes rose 13 percent in the fall,
and declined 24 percent in the spring. The net effect was 26
fewer morning and evening crashes with pedestrian or bicyclist
fatalities per year, and 29 additional morning and evening
crashes with vehicle occupant fatalities.
It is important to emphasize that our study does not point
to a preference for Standard Time or Daylight Saving Time based
on road safety alone. The clearest take away from this research
is that there is a strong relationship between increased
darkness and fatal crashes, particularly for pedestrians and
bicyclists. This is consistent with previous studies, including
our own work from 30 years ago examining the effects of
Daylight Saving Time.
While the clock may not hold the answer to our road safety
crisis, there are known solutions for protecting pedestrians in
dark and low-light conditions, and for reducing the crash toll
overall. We should commit to infrastructure and vehicle
improvements that have been shown to increase safety for
pedestrians and bicyclists on different types of roadways in
urban, suburban, and rural environments.
This includes engineering treatments to improve motor
shielding behavior, and vehicle technologies such as better
headlights and automatic emergency braking.
Efforts are also needed to address speed on our roadways.
The speed effect on crash severity is more pronounced for
pedestrians and bicyclists who do not have the benefit of the
vehicle structure to protect them. Speed limit policy,
enforcement, engineering, and vehicle technology all have a
role to play in slowing down drivers. Such a multipronged
strategy to improve pedestrian and bicyclist safety at night
exemplifies the safe system approach, which the U.S. DOT has
adopted as the guiding paradigm of the National Roadway Safety
Strategy. But implementation has simply been too slow.
We are alarmed by the rising toll of crashes on our
Nation's roads and dismayed by the lack of urgency to fix the
problem. For this reason, we recently launched an initiative we
are calling 30x30, a goal to reduce U.S. fatalities 30 percent
by 2030. Achieving this reduction will require concerted effort
by all stakeholders. We will increase our efforts to address
risky behaviors, seek opportunities to improve safety for
everyone inside and outside the vehicle, and explore ways to
make commercial vehicle fleets safer.
We ask everybody who cares about the needless loss of life
on our roadways, including this committee, to think about what
they can contribute to achieving the 30x30 goal.
Thank you.
[The prepared statement of Dr. Harkey follows:]
Prepared Statement of David Harkey, President,
Insurance Institute for Highway Safety (IIHS)
Chairman Cruz, Ranking Member Cantwell, and Members of the
Committee--thank you for the opportunity to share my organization's
research on the road safety implications of daylight saving time.
The Insurance Institute for Highway Safety (IIHS) is an
independent, nonprofit scientific and educational organization
dedicated to reducing deaths, injuries and property damage from motor
vehicle crashes through research and evaluation and through education
of consumers, policymakers, and safety professionals. Our work is
wholly supported by U.S. and Canadian auto insurers.
When discussing any topic on road safety in the United States, it
is important to set the stage. Simply put, we are in the middle of a
road safety emergency. Crash deaths have risen nearly 30 percent since
2014, from below 33,000 to more than 42,000 in 2022. Pedestrian deaths,
in particular, have reached crisis levels, climbing 83 percent from
their low point in 2009.
Changing the clocks twice a year is relevant to road safety first
and foremost because it affects the amount of ambient light during peak
times for travel. We know that darkness is associated with increased
risk of fatal crashes. According to data from the National Highway
Traffic Safety Administration and the Federal Highway Administration,
less than a quarter of trips begin during nighttime hours, but nearly
half of motor vehicle occupant deaths and 77 percent of pedestrian
deaths occur in the dark. Obviously, adjusting the clock cannot
increase the number of daylight hours, but can only shift how they
align with work and school schedules. Since people travel at all times
of day and the risk created by darkness varies by road user type, the
effects of these time changes on crashes are complex.
IIHS sought to tease out some of this complexity in a recent
study.\1\ When we looked at morning and evening crash patterns in the
weeks surrounding the time changes, we found that the current policy
results in a net annual decrease of 26 crashes with pedestrian or
bicyclist fatalities per year but a net annual increase of 29 crashes
with vehicle occupant fatalities. Safety improves for pedestrians after
``springing ahead,'' while vehicle occupants fare better after
``falling back.'' Further investigation showed that the fluctuation in
pedestrian crash deaths is clearly tied to the amount of ambient light,
but there is no clear connection for vehicle occupant fatalities.
If you are looking for concrete guidance on whether to keep the
current twice-yearly time changes, to make daylight saving time
permanent, or to abolish it completely, you may find this study
unsatisfying, as the evidence does not point definitively one way or
another. What our study does reinforce is that pedestrians and
bicyclists are at greater risk in low light and dark conditions. Thus,
whatever you decide to do about the clock, I hope you will also
consider actions to keep pedestrians and bicyclists safe, especially
after sundown.
IIHS study of daylight saving time
The aim of our recent study was to examine the effect of changes in
light conditions associated with the beginning and end of daylight
saving time, rather than the short-term sleep disruption associated
with changing the clock. IIHS researchers looked at data from the U.S.
Department of Transportation's Fatality Analysis Reporting System for
the 5 weeks before and after each time change from 2010 through 2019.
Only crashes between 4 a.m. and 10 a.m. and between 3 p.m. and 9 p.m.
were considered. Ambient light conditions were calculated using the
sunrise and sunset times corresponding to the geographic coordinates of
each crash.
Crashes resulting in vehicle occupant deaths fell 7 percent in the
5 weeks after the time change in the fall and increased 12 percent in
the 5 weeks after the time change in the spring. The opposite was true
for crashes resulting in pedestrian or bicyclist deaths. Those crashes
rose 13 percent in the fall and declined 24 percent in the spring.
As mentioned, the net effect was 26 fewer morning and evening
crashes with pedestrian or bicyclist fatalities per year and 29
additional morning and evening crashes with vehicle occupant
fatalities.
When we looked at the time of day when the crashes occurred and the
associated light conditions, we found that all of the decrease in
pedestrian fatalities could be attributed to an increase in the amount
of light, while only two of the additional crashes resulting in vehicle
occupant deaths were due to less light.
It's unclear why the effect of the time change on vehicle occupant
fatalities was opposite of the effect on pedestrians. The results
suggest that unlike the effect on pedestrians, the vehicle occupant
effect was largely unrelated to light conditions. It's possible that
factors including driver drowsiness or behavioral changes in response
to the time changes played a role, but our study did not examine those
things.
It is important to emphasize that our study does not point to a
preference for standard time or daylight saving time based on road
safety alone. In addition to the diverging results for different road
user groups, we should keep in mind that an extra hour of light on one
end of the workday is counterbalanced by an extra hour of darkness on
the other end.
The clearest takeaway from this research is that there is a strong
relationship between increased darkness and fatal crashes, particularly
for pedestrians and bicyclists. This is consistent with previous
studies, including our own work from 30 years ago examining the effects
of daylight saving time.\2\
Improving safety after dark
While the clock may not hold the answer to our road safety crisis,
there are known solutions for protecting pedestrians after dark and for
reducing the crash toll overall.
First of all, we should commit to infrastructure and vehicle
improvements that have been shown to improve safety for pedestrians and
bicyclists on different types of roadways in urban, suburban, and rural
areas. Our research has shown that crosswalk lighting, rectangular
rapid flashing beacons, and pedestrian hybrid beacons all make drivers
more likely to yield to pedestrians.\3\,\4\ Improved
headlights are also key, allowing drivers to detect pedestrians further
down the roadway. Vehicles with good marks for visibility in IIHS
headlight evaluations have 23 percent fewer nighttime pedestrian
crashes than vehicles with poor-visibility headlights.\5\
Our work on passenger-vehicle automatic emergency braking that can
detect and respond to pedestrians shows that this technology cuts
pedestrian crash rates 27 percent.\6\ In the last few years, automakers
have been improving the performance of these systems at night in
response to IIHS tests. Making these systems work better at night is
key to addressing the three-quarters of pedestrian fatalities that
occur in dark and low-light conditions.
Efforts are also needed to address speed on our roadways. Higher
vehicle speeds make crashes of all types more likely and more deadly.
The speed effect on crash severity is more pronounced for pedestrians
and bicyclists, who don't have a vehicle's structure to protect them.
In one study of U.S. pedestrian crashes, the average risk of severe
injury to a pedestrian increased from 10 percent at an impact speed of
17 mph to 25 percent at 25 mph, 50 percent at 33 mph, 75 percent at 41
mph, and 90 percent at 48 mph.\7\
Reducing speed limits, especially in areas with high pedestrian
traffic, is an obvious solution. Enforcement must also play a role, and
traditional methods can be supplemented by the wider use of speed
safety cameras. Engineering measures such as curb bulb-outs, multiway
stop signs, left-turn hardening devices, and roundabouts could be more
widely deployed to slow vehicles at intersections. Broader adoption of
intelligent speed assistance in vehicles could change drivers' behavior
and even their mindset.\8\
Addressing the larger road safety crisis
Such a multipronged strategy to improve pedestrian and bicyclist
safety at night exemplifies the Safe System approach, which the U.S.
Department of Transportation has adopted as the ``guiding paradigm'' of
the National Roadway Safety Strategy.\9\ While the Department should be
commended for committing to this principle, little progress has been
made to translate it into action and reverse the Nation's fatality
trend.
We at IIHS are alarmed by the rising toll of crashes on our
Nation's roads and dismayed by an apparent lack of urgency to fix the
problem. For this reason, we recently launched an initiative we are
calling 30x30--a goal to reduce U.S. fatalities 30 percent by 2030.\10\
Achieving this reduction will require a concerted effort by all
stakeholders. For our part, IIHS has laid out a series of concrete
research, testing, and education actions that we are undertaking as
part of our 5-year strategic plan. We will increase our efforts to
address risky behaviors, seek opportunities to improve safety for
everyone inside and outside the vehicle, and explore ways to make the
country's heavy and light commercial vehicle fleets safer. We ask
everybody who cares about the needless loss of life on our roads--
including this Committee--to think about what they can contribute to
achieving the 30x30 goal.
References
1. Woods, A. N., Weast, R. A., & Monfort, S. S. (2025). Daylight
saving time and fatal crashes: The impact of changing light conditions.
Journal of Safety Research, 93, 200-205. https://doi.org/10.1016/
j.jsr.2025.02.010
2. Ferguson, S. A., Preusser, D. F., Lund, A. K., Zador, P. L., &
Ulmer, R. G. (1995). Daylight saving time and motor vehicle crashes:
The reduction in pedestrian and vehicle occupant fatalities. American
Journal of Public Health, 85(1), 92-95. https://doi.org/10.2105/
ajph.85.1.92
3. Hu, W., Van Houten, R., Cicchino, J. B., Engle, J., & Al
Shomaly, L. (2025). Effects of crosswalk illuminators and rectangular
rapid flashing beacons on speed reductions and yielding to pedestrians
at night. Transportation Research Record. https://doi.org/10.1177/
03611981241310131
4. Avelar, R. E. & Cicchino, J. B. (2024). Factors influencing road
user behaviors and motivations around pedestrian hybrid beacons and
rectangular rapid flashing beacons in North Carolina. Insurance
Institute for Highway Safety. https://www.iihs.org/topics/bibliography/
ref/2324
5. Brumbelow, M. L. (2022). Light where it matters: IIHS headlight
ratings are correlated with nighttime crash rates. Journal of Safety
Research, 83, 379-387. https://doi.org/10.1016/j.jsr.2022.09.013
6. Cicchino, J. B. (2022). Effects of automatic emergency braking
systems on pedestrian crash risk.
Accident Analysis & Prevention, 172, Article 106686. https://
doi.org/10.1016/j.aap.2022.106686
7. Tefft, B. C. (2013). Impact speed and a pedestrian's risk of
severe injury or death. Accident Analysis & Prevention, 50, 871-878.
https://doi.org/10.1016/j.aap.2012.07.022
8. Reagan, I. (2024, August 13). With the right mindset, speed-
limiting technology can be liberating. Insurance Institute for Highway
Safety. https://www.iihs.org/news/detail/with-the-right-mindset-speed-
limiting-technology-can-be-liberating
9. U.S. Department of Transportation. (2025, January 14). What is a
Safe System Approach? https://www.transportation.gov/safe-system-
approach
10. Harkey, D. (2025, February 20). As Vision Zero hopes fade, a 5-
year goal can help us reset. Insurance Institute for Highway Safety.
https://www.iihs.org/news/detail/as-vision-zero-hopes-fade-a-5-year-
goal-can-help-us-reset
STATEMENT OF HON. JOHN CURTIS,
U.S. SENATOR FROM UTAH
Senator Curtis [presiding]. Thank you. You will notice the
freshmen have taken over this committee.
[Laughter.]
Senator Curtis. And we have an agenda, don't we? Yes.
Listen, I am pleased to be here. John Curtis from Utah, and
thank you, panel, for this important topic, and I think it is
fair to say that my constituents share the same frustration
that has been articulated here by the back and forth.
Mr. Yates, you mentioned in your testimony that the only
reason we still have this time change every 6 months is due to
the Federal Government's inability to decide between Standard
or Daylight Savings Time, which one is best. Based on your
research and your outreach, do you have any indication how many
states would opt out and maintain permanent Standard Time if
your proposal for permanent Daylight Savings Time were enacted?
Mr. Yates. Thank you, Senator, for the question. I do not
have a specific answer. I can talk to you about some of the
conversations that I have had with state legislators,
including, I do not know if you know Dr. Raymond Ward in Utah.
Senator Curtis. Yes. Sure.
Mr. Yates. He was the sponsor of the bill there, and he
thought--and he said, all of his constituents told him that the
state preferred--that everybody preferred to stay in permanent
Daylight Time in Utah. Utah might be a case where Standard Time
might be a good option, and that is why I think the 2-year
implementation would actually be a great chance for everybody
in Utah to look at what the sun----
Senator Curtis. Well, let me jump. Let us talk about Utah.
Mr. Yates. Sure.
Senator Curtis. You are correct. They have actually passed
legislation to stay on permanent Daylight Savings Time. And I
guess my question is, why should not states have the right to
make this decision? Don't they know best about what they want
for their constituents? And you know, why are not we giving
more accommodation to states, and particularly Utah who has
spoken so vocally about what they would like?
Mr. Yates. I am sorry, Senator, are you asking is there a
way that the states could opt out of?
Senator Curtis. So my point is----
Mr. Yates. Yes.
Senator Curtis.--states know what is best for them.
Mr. Yates. Right?
Senator Curtis. Some states, like Utah, clearly have a
preference, and some would go the other way.
Mr. Yates. Yes.
Senator Curtis. And I guess my question is, now let me tie
that into the next question, is we could see a patchwork, which
I suspect might be the answer to that. Now, Utah, by the way,
we abut Arizona, and so my whole life we have watched Arizona
mock us, right, as we all change our times, and somehow we have
navigated that just fine, right, without any problem. And then
I would also bring up, the technology is in a very different
place than it was years ago and our ability to adapt to this.
So do you worry about a patchwork, or are we OK with that?
Mr. Yates. Thank you for the question, Senator. I think
that less complexity in the system is better. It is natural to
think that there would be a patchwork if we allowed more states
to opt into permanent Standard Time, but we have a patchwork
now. What we would be creating is less of a patchwork because
the lines might change a little bit.
For instance, Indiana, for instance, may decide that it is
better for the whole state of Indiana to be in Central Time
with Chicago, which it abuts and which is a thousand miles from
Boston. And so it would not create a patchwork, it would just
create a change in where the line is.
And so the first and most important thing is decreasing and
eliminating the clock changing, which decreases complexity. And
then once we have got that stability, it will not be a
patchwork. It will just be we know what time it is in Indiana,
because of all this.
Senator Curtis. Just the way we have accommodated it too,
with Arizona.
Mr. Yates. Exactly.
Senator Curtis. Right. And if we are honest we, like your
point, we already have these lines, and they do just fine with
that.
Mr. Yates. Yes.
Senator Curtis. And so, just for the record, I am a strong
advocate to let my state do what they prefer to do. And feel
like they know how to make those decisions best.
I am going to use just a little bit of time for actually a
very interesting personal question, Dr. Johnson. Given all the
effects that we have heard about, what is the likelihood that
if somebody had a profession where they were moving across the
country twice a week and changing time zones, an hour, or 2
hours, or sometimes 3 hours, that they would be subject to
those same problems?
Dr. Johnson. So you know, a lot of us can relate to jet
lag. One thing that happens with jet lag is you are moving to a
new time where the sun is in the sky. And so we adjust to that
within a day or two, we get to the new time zone depending on
how far we are going. What happens with going to permanent
Daylight Savings Time is we are changing the clock time, but we
are not changing the sun. That is why there is this perpetual
misalignment that has more stresses and harms to our body over
the long run.
So very frequent time travel with a lot of adjust is a big
strain on the body; but for most people that do not do it all
the time, we do adjust within days, and we can get, you know,
that better health and more misalignment--or more alignment of
our rhythms within days.
Senator Curtis. Unless, within days, you are going back to
the previous time zone?
Dr. Johnson. That is why they are really frequent, not
good.
Senator Curtis. All right. I think I have made my point. I
will yield to the Ranking Member.
Senator Blunt Rochester. Thank you to my fellow freshman
and classmate, Senator Curtis. And also thank you to Senator
Cantwell for the opportunity to be Ranking Member today. And I
also want to thank the witnesses.
You know, this is one of the issues that a lot of times we
will get messages from our constituents. People have strong
opinions. And I was literally in a meeting before this with a
CEO of a company who asked: Well, what do you think? And so
this is something that does touch on so many.
And I want to start my questions with you, Dr. Harkey,
because year-round Daylight Saving Time would mean later
sunrises in the mornings, more people may be commuting to work
or into school in the dark. Some people have raised concerns
that this would put their children at greater risk of being hit
by cars while walking to school. Pedestrians are more likely to
be killed in traffic accidents, as you stated, in the dark,
because it is harder for the drivers to see them.
And in the 1970s, it was widely reported that mothers
raised significant concerns about their children walking to
school in the dark in the winter. Nationwide, over 70 percent
of fatal accidents involving pedestrians occur at night. Dr.
Harkey, no matter what time the sun goes down, what roadway
improvements can cities and states make to reduce pedestrian
fatalities?
Dr. Harkey. Thank you for the question, Senator. That is
exactly what our study indicated is that it is not about the
shifting of the time. We are going to have darkness regardless
of which decision you make, which policy decision you make. And
so that is what we are looking for, is to try and figure out
how do we make pedestrians and bicyclists, in particular, safer
in those dark hours, whether they are in the morning or whether
they are in the evening.
And for most municipalities and county agencies and state
DOTs who are struggling to address this issue, there is two key
things: One is space, we have to provide the appropriate space,
sidewalks. In rural areas, that can be separated paths, or
possibly paved shoulders, even places for people to walk where
they are not in the edge of the travel lane.
We also have to take care to provide careful crossings. So
we have to pay particular attention to how we are allowing
motor vehicles and pedestrians to interact at crosswalks. These
can be at intersections. They can be at midblock locations. So
you have to have appropriate crossings. Pedestrians are not
going to walk too far. They are going to make those decisions
to cross in the middle of the road sometimes, and so you want
to make sure that you are providing adequate crossings where
they want to cross.
And then you have got to do all you can to provide the
kinds of traffic control devices that will increase motorist
yielding behavior. So this includes things like rapid flash
beacons, which have been shown to increase motorist yielding
behavior six-fold. You can build on that. Adding simple things
like lights that are triggered when a pedestrian hits the
crosswalk area. It will light up that crosswalk. You can double
the amount of motorist yielding behavior.
So these are interventions that have been proven over time,
and it is important for state agencies and local agencies to
take advantage of those kinds of interventions and get those
implemented anywhere that they have pedestrians.
Senator Blunt Rochester. Following along on the safety
theme, what vehicle technologies can help protect pedestrians
when it is difficult for drivers to see them?
Dr. Harkey. Yes. And so this is another important aspect,
and this is what builds on the safe system approach, right,
building that redundancy into the systems. You do not just rely
on the infrastructure; you also build technology into vehicles
that can help with this.
Two big things that we have studied, one is better
headlights. We are the only group in the world that test
headlights the way that we do on our track, and so we have seen
improvements in headlights over the years that increase
visibility and provide drivers with additional time. They can
see that pedestrian further down the roadway. And so that is a
big change, and we will continue to push for that.
The other is automatic emergency braking with pedestrian
detection, that also has been shown to work and be very
effective at reducing pedestrian crashes in the daytime, and
now our testing is really focused on getting automakers to
improve those systems to work even better at nighttime, so that
is an example of two technologies in the vehicle that can be
really, really beneficial.
Senator Blunt Rochester. You know, one of the things that I
have noticed is that our safety efforts are siloed. You have
the Federal Highway Administration, which builds and maintains
highways, you have the National Highway Traffic Safety
Administration, which regulates vehicle safety standards and
investigates defects, then you have got the Federal Motor
Carrier Safety Administration, which oversees commercial motor
vehicles and trucking industry safety all kind of working
separately.
And I think back to what you were talking about, about kind
of--how can we better layer safety measures to help stop deadly
crashes?
Dr. Harkey. Yes. You are absolutely right. And so build on
top the separation and the Federal agencies that you just
discussed, along with them, you have state DOTs, you have
county DOTs, you have city DOTs, and so it becomes quite the
web of how you make decisions when it comes to road safety.
One of the things that we have to do a better job of is
communicating between those agencies, deliberately. And so
there is no single authority of the ones that you mentioned
that has complete authority over every decision on our roadway
system when it comes to safety. And so these agencies have to
do a better job of communicating together deliberately, and not
just at the executive level, but at the staff level, because it
is at the staff level where people know what interventions work
best and how to apply those in a way that you create that
redundancy in the system that we were talking about.
So whether it is infrastructure, whether it is vehicle,
whether it is changing behaviors, that communication amongst
the staff is absolutely critical.
Senator Blunt Rochester. Great. Thank you. And I was really
interested to hear about your 30x30. So in the interest of
time, I will yield back to the Chairman.
The Chairman. Thank you very much, and I want to thank each
of the witnesses for being here on what is a very interesting
topic, and important topic, and complex topic. There are very
real and complicated issues and countervailing arguments on
both sides. I think there is widespread agreement on locking
the clock, but where to lock it, the reason we are holding
these hearings is because these are real arguments, and they
have real impacts on people.
Let me start on the health side. Dr. Johnson, can you
expand on the impact sleep deprivation has on our overall
health, on our minds, our moods, and especially on young
children, for whom we know sleep is so vital?
Dr. Johnson. Thank you for asking about that. Yes, sleep
comes--you know, has different aspects. So one is just how much
we sleep, but it is the quality of sleep, and then the timing
of sleep, so any disturbance in that can affect how we do. So
we know that kids, even if over a whole week they get enough
sleep, if they do not get enough during the week and catch up
on the weekend, they still do not do as well.
And so sleep and our circadian rhythms, they really
regulate every aspect of our body, our metabolism. They affect
how we think about things, they affect our choices of food. You
are more likely to grab a celery stick when you have got enough
sleep, but grab that bagel or that candy bar when you are
sleep-deprived.
Athletic performance, we know, is better when people do
sleep, academic success in school. And then mental health has
some of the most, deep connections to sleep health. And that is
why even though people, you know, feel better when they see
light, it is that timing of light and our circadian rhythms
that is so deeply intertwined that if we can improve sleep, if
we can improve those rhythms, we see those lower rates of
depression overall. We see lower rates of suicide.
And that is what the data, there was just a new study that
came out just last week showing 6 percent higher rates of
depression when the sunrises are set later, when we lose that
critical morning light. And this gets exponentially worse in
the winter when you lose the--you know, the light in the
morning.
So Texas and the southern states actually lose that morning
light for a longer period because of the curve of the Earth the
more even days. You get three to 4 months with it being dark
after 8 a.m., and some of the darkest places in the country are
actually in western Texas if we were to go to permanent
Daylight Savings Time.
And that is why in 1974, a lot of the push to end our
experiment with Daylight Savings Time was actually pushed by
states like Florida, and Texas, and the southern states.
The Chairman. Can you also explain why consistent sleep
patterns are important for teen brain development and mental
health?
Dr. Johnson. Yes. So again, this goes back to our circadian
rhythms, and so better--so when our circadian rhythms are
working well, they help us anticipate our day. And so what I
mean by that is we have certain times when our body wants to go
to sleep, and so teenagers, their natural rhythm is later. If
any of you have been around a teenager, you cannot just say: Go
to bed, you know, they are like: I am wide awake.
We have this, what we call, a forbidden zone, their
alertness just is skyrocketing in that time before bed. And so
they cannot get to sleep on time. But if our social schedule is
set an hour earlier, which is what Daylight Savings Time does,
they do not have that opportunity to get the amount of sleep
they need. And they tend to switch back and forth on weekends,
and that switching affects us.
And so that then affects how our brain functions. We know
more and more about sleep being important for clearing toxins
from our brain, which sets us up for things like dementia,
Parkinson's disease. I just came back from the neuro conference
with data pointing to, you know, the connections there. Our
metabolism gets off, so we are more likely to gain weight.
Again, even if people do exercise more, we see, like, 10
percent higher rates of obesity in places where the sun sets
later.
So sleep is so critically important for our metabolic
health, our overall health, our mental health, how our brain
functions, which affects the safety issues. You know, the
highway study, it found a higher risk of vehicle crashes even
though it was light later, the effect of sleep is more powerful
than almost anything else, and by aligning the sun we can
really help that.
The Chairman. So let us talk a little bit about the idea of
states' rights. And I have heard from groups on both sides of
this issue that want either permanent Standard Time or
permanent Daylight Savings Time. Almost everyone agrees that
changing the clock twice a year does not make sense.
Mr. Yates, in your opening statement, you said that setting
the clock is fundamentally a states' rights issue. Why do you
think that decision should be left to the states?
Mr. Yates. Thank you for the question, Senator. The main
reason is geography, right. Like, we live on this big round
ball, and the sun is moving, and the difference in where each
state is makes a big difference in how the sunrise and sunset
time applies. And so to say that there is one solution that is
exactly right for, you know, Texas, and the exact same solution
is right for Atlanta, for Georgia is, what I would posit,
overreach by the Federal Government.
And I might even go back to the example that is often cited
about when the time change happened in the 1970s, and just to
give a little context to why that was so--why that was such a
failure, it is often cited that people did not like it because
there were children that were put at risk in the dark waiting
for school. It turns out, a lot of that is apocryphal, as we
have heard, pedestrians are much safer with more light later in
the day.
But the thing that is interesting about that time change
was, and this shows you how different politics was back in
those days, that law was signed into law on December 15, 1973,
right in the middle of Watergate. You could say that maybe it
was a distraction from other things that were going on, but it
was enacted on December 15th, on a Saturday.
It was enacted--it took place on January 6, 1974, about
three weeks later. So you can imagine, the worst Monday of the
year already is the one after the holiday break, where you have
to go back to school and everything, to have an extra hour of
sleep robbed away right before that, you can understand why it
was so unpopular and why it was repealed two months after Nixon
resigned office.
So it clearly does not work for the Federal Government to
come and say this is a mandate of exactly what we should do for
all of the country all at the same time. But it is the place of
the Commerce Committee to say we need a well-regulated time
system.
And so it makes sense to get rid of the clock changing, and
if we give 2 years to the states to be able to say, so that all
of these arguments can be hashed out, and they are all valid
arguments, but they can be hashed out in the geography of the
place where it would actually apply. And they would have time
to plan and figure out what is the appropriate time for school
to start, to take in this evidence from neurologists, and what
is the best time for all of the businesses to operate.
The Chairman. So maybe if we had more daylight, the
Watergate break-in does not happen, and history would be
different.
Dr. Johnson, you seem to disagree with having states decide
on how they should lock the clock. In your judgment, why do you
think that would be the wrong approach?
Dr. Johnson. So time is a measure. So Congress has the
control over setting measures. I think of my husband, he likes
to make a joke: He is 6'6'' in the morning and 6'5'' in the
afternoon. We do not change the length of a foot on his diurnal
pattern of his height. Time is supposed to say, you know, how
the sun is moving through the sky.
And so if we set it to a Standard Time of the sun being
closer to overhead at noon, now that is something we can go by,
but states then can decide how they want to set their social
schedules. So instead of sort of tricking people into, you
know: You all have to get up early no matter what; let us have
each state decide when they want their schools to start, when
businesses want to start, but let us fix a measure of time that
actually has a meaning, where the sun is overhead, and then
adjust, you know, the social schedule around it. And that is
definitely something the states should decide on.
The Chairman. Thank you. Senator Lujan.
STATEMENT OF HON. BEN RAY LUJAN,
U.S. SENATOR FROM NEW MEXICO
Senator Lujan. Thank you, Mr. Chairman. Thank you all for
being here today.
Dr. Johnson, thank you for joining us today. I saw that the
American Academy of Neurology sent the Committee a letter
encouraging us to consider that Standard Time, not Daylight
Savings Time, is the best to align with our body's natural
clocks. Many people still sleep through the morning light or
after the early sunrises. Does that mean that light is being
wasted if they are not using it awake?
Dr. Johnson. So light helps us get up. You know, most
people will wake up naturally after light. Now, some people, my
teenagers, could easily sleep until noon, and that makes them
actually more likely to shift their schedules even later. So
when you miss morning light, which is needed to reset your
rhythm, or if you get too much light in the evenings, you drift
later and have even more trouble getting up in the morning.
And so that is why, if we actually set it so the sun is
rising earlier in the morning, more people will actually,
naturally, because their circadian rhythms start saying, ``get
up on time'' rather than ``get up so late'', will be able to be
ready for the day, be able to have their circadian rhythms help
their health, help their metabolism which is good--going to be
good for heart disease, stroke risk, dementia risk, all these
other sort of chronic health problems.
Senator Lujan. I appreciate that. To all the panelists,
what does this mean for New Mexico, for our farmers, school
children and teenagers, the elderly, workers, and tourism, and
recreation? What would permanent daylight Standard Time or
permanent Standard Time mean for these communities? One or the
other, I apologize, not an ``or''? Mr. Yates?
Mr. Yates. Senator, thank you for the question. New Mexico
is another real leader in early movements to try to lock the
clock. Senator Cliff Pirtle--State Senator Cliff Pirtle worked
on this. I worked with him closely for a long time. The effects
on everybody in New Mexico of the clock changing is the same,
which is, it is very disruptive, it is not disruptive equally
for everybody, but for a lot of people, it is. A lot of--you
know, all the things that we have cited, all the different
health studies show that.
The thing that I have been advocating today about the two-
year implementation period would be especially helpful for New
Mexico because you have a tricky little trade region where you
abut West Texas, which is in the Mountain Time Zone, and part
of Mexico. And so there is a region where interstate commerce
is directly affected.
And so all of Mexico recently decided to lock the clock,
except for the part that is attached to West Texas and New
Mexico, and so these issues of commerce are complicated and do
take a little while to work out. So that is the one thing I
would say, is that that sort of thing should be addressed
carefully.
Senator Lujan. Mr. Karen.
Mr. Karen. I would say that the golf courses in New Mexico,
which enjoy mostly afternoon and evening light, all the great
hiking that goes on in New Mexico, the rock climbing, the hot
air ballooning, all of that would be seriously curbed if
Daylight Saving Time was removed. And that would be, I think, a
detriment to the New Mexico economy and people's time and
ability to get outside and enjoy what you have.
Senator Lujan. You are suggesting that people hike and golf
in the morning?
Mr. Karen. No, they do all that in the afternoon. And if
Standard Time was made permanent, they would feel forced to do
it in the morning. But they have to go to school. They have to
go to work. And I do not think they would be able to make that
shift.
Senator Lujan. I appreciate that. Dr. Johnson.
Dr. Johnson. Yes. I would say, if anything, you know, you
have a neighboring state, Arizona, that does very well on
Standard Time and has shown that the golf industry can thrive.
If anything, a lot of people say, and one of the reasons
Arizona says they stayed on Standard Time, is because it gets
too hot later. So a lot of people do like to do exercise later,
and that often is actually a better time for our health to get
our exercise in. So if we can get people up so that they can be
more active in the morning and get this exercise and enjoy all
the wonderful things like hiking, which I know, when I have
gone to places like New Mexico, I do in the morning you know, I
think that we can still have all these activities on either
time, but I think Standard Time is the healthier choice.
Senator Lujan. Dr. Harkey.
Dr. Harkey. So our work was looking at fatality data
nationally rather than by individual states, in part due to
sample size. But if the patterns hold in New Mexico, just like
they have in our research across the country, then we are going
to see an offset between the number of motor vehicle occupant
deaths that have risen slightly during the time change periods,
and pedestrian and bicyclist deaths that have decreased
slightly during that same time period.
And so the net effect is one of really no change when we
look at road safety data alone. And so if you are trying to
make this decision on the basis of just road safety, I do not
think the results of our study are going to point you in one
direction or the other.
Senator Lujan. As a follow up to that, Dr. Harkey, Dr.
Johnson pointed to a study from a professor at Eastern New
Mexico University, Jeff Gentry, who showed 20 percent higher
car crashes in locations where sunrises and sunsets are later.
Now, I understand your point that darkness is a key measure of
accidents, but this data shows me that sleep effects are
powerful indicators as well. How do you view the risk of sleep
deprivation on accidents versus risks from darkness?
Dr. Harkey. So our study did not look specifically at that
particular issue. I know other studies have, methodologies
differ. Most of the studies that have tried to look strictly at
that small amount of time change before and after in the
crashes concur that the real issue here is the amount of
ambient light and the time of day when it occurs. That darkness
is the real key, and you just need to make sure that you are
providing good safety interventions to address issues of
darkness.
So whether that is improving technologies in the vehicles
such as headlights, automatic emergency braking, or whether you
are putting in infrastructure measures that add more lighting,
add more space for pedestrians and bicyclists to keep them
separated from motorists, whatever you can do to reduce those
conflicts in the darkness and improve awareness of other road
users in the darkness, will be beneficial----
Senator Lujan. Appreciate that.
Dr. Harkey.--regardless of the time change.
Senator Lujan. It sounds like you support my legislation to
require technology be installed in vehicles to prevent impaired
crashes, so I will take that as well. We will share that with
my colleagues.
Mr. Chairman, I have one more question for Mr. Yates on
Standard Time versus Daylight Savings. I will submit it into
the record.
And just a note to the panelists, the reason I am asking so
much about sleep is, as my colleagues know, I suffered a stroke
3 years ago. I have learned a lot about the importance of
sleep. I definitely lived my life burning the candle at both
ends, and now I do my due diligence to embrace sleep hygiene
and all the rest. And so that is bearing a lot into this
conversation that I am having with my constituents and others.
Mr. Chairman, I very much appreciate this hearing, though.
Thank you all for being here.
The Chairman. Thank you, Senator Young.
STATEMENT OF HON. TODD YOUNG,
U.S. SENATOR FROM INDIANA
Senator Young. Well, I thank all of you for being here. I
am the senior senator from the state of Indiana, and we have
quite a history with Daylight Savings Time. For those of you
who have consumed old ``Parks and Rec'' episodes, you may have
seen the one that focused on this particular topic.
But let me walk through some of the things that have
transpired in our state, and I will weave in there some of the
unique perspectives that Hoosiers have brought to this. Until
2006, our state was chronologically divided, you might say,
with some counties observing Daylight Savings Time and others
not. And then in 2006, after years of debate, furious debate,
our state decided to become the 48th state to adopt Daylight
Savings Time.
In central Indiana, on the shortest day of the year,
December 21, the sun currently rises at 8:02 a.m. and sets at
5:23 p.m. Under permanent Daylight Savings Time, sunrise would
be delayed until 9:02 a.m., meaning Hoosiers would begin their
day in darkness for much of the winter.
What works for East Coast states, I am hearing from many of
my constituents, might not work for states like Indiana. We
have 12 counties in the western part of the state that are in
the Central Time Zone. So Evansville, Indiana, if you are
familiar with that, you have got up near Chicago what we call
``the Region'' affectionately, and there are 80 other counties
that are in the Eastern Time Zone.
So you know, this sort of suggests that maybe a one-size-
fits-all national policy on time changes does not take into
account the regional differences that significantly impact
daily life. I understand we have a charge, Article I, Section
8, to facilitate interstate commerce. It was one of the major
arguments of facilitating interstate commerce from the state
level when we had this debate. So I anticipate we have heard
that. I anticipate I will hear more of that from my colleagues,
but that has to be balanced against other considerations, of
course.
Leaving this decision to the states might allow local
leaders, who best understand their communities, to weigh the
specific needs of their residents, states along this line of
argument, are in a better position to evaluate how changes in
daylight hours affect school schedules, commuting patterns,
public safety, and economic activity.
So I guess to the panel, do you believe that states like
Indiana, with their unique cultures, and geographical
challenges, and even histories as it relates to this issue,
should have the flexibility to make their own decision, or do
you think this decision should be standardized across the
country?
We will begin with Mr. Yates, and I will give everyone an
opportunity to speak to that, if you like. Yes, sir.
Mr. Yates. Thank you, Senator Young, for the question. And
I mentioned Indiana in my opening statement because it is a
perfect example of why the Commerce Committee needs to approach
this carefully. Because to impose onto Indiana a solution that
is the same as for New York and for New England is not in the
best interest of the people of Indiana and is a little bit
rude.
The one thing that I might say, though, is that I have
never been to Indiana to testify, but I did go to Michigan to
testify about their Daylight Saving Time bill. And I went to
Nebraska and to Kansas, which are states like Indiana on the
western edge of their time zones and would make the most sense
for them to be in Standard Time.
And I advocated for that with the state senators and state
representatives in those states. And all of them told me that
all of their constituents do not care. They would rather, like
they are in the middle of the winter, they are already going to
school and, right, going to work in the dark, and they would
just like to have a little bit of time after school and after
work to be in the light. So I said, OK, this is your state.
Senator Young. All right.
Mr. Yates. You get to pick.
Senator Young. Thank you. Thank you for your response.
Mr. Karen.
Mr. Karen. Well, I am no constitutional scholar, for sure,
but I do not see in the Constitution where it says that the
Federal Government regulates time. I do not know if time falls
under Commerce. So it would naturally fall to the states if the
Federal Government is not empowered to do so.
The Chairman. We have the view that everything falls under
Commerce.
[Laughter.]
Mr. Karen. I appreciate that. I will say, you know, I feel
it is less of a state issue than it feels like a personal
issue. And the ability to do, for example, to Senator Lujan's
comments, I can simulate or practice sleep hygiene whether the
sun is up or down. But I cannot simulate sun hygiene. I cannot
light the world when we want to be out there when it is dark,
right.
And so I think, to me it comes down to which choice, if you
were to land on one, is going to be harder to adjust to. We are
already on Daylight Saving Time for 8 months, so we would have
to adjust for 4 months. If you reverse it, then we are
adjusting 8 months of our calendar.
Senator Young. Thank you, sir. Dr. Johnson, would you like
to say something about this?
Dr. Johnson. Yes. I want to talk about the western edge of
time zones. States like yours are more aligned with Central
Time Zones. So already on Standard Time, your sun is going to
be overhead closer to 1. When we go to Daylight Savings Time,
now it is closer to 2. And we see that this really impacts
health risks, mental health risks, safety risks, how kids do in
school.
I want to highlight one Indiana study. When you guys ended
going to the parts of the state that were on Standard Time----
Senator Young. Wait, you are coming with a study? You are
citing a study? Are we allowed to do that in this--is that
consistent with the rules, Chairman Cruz? I am kidding, of
course.
Dr. Johnson. So when part of Indiana ended Standard Time
and went to seasonal Daylight Savings Time, they found that
kids' high school test scores were actually much better when
they were on Standard Time and dropped when they switched to
even seasonal Daylight Savings Time. And that is not adding the
exponential harms of bringing those 9 a.m. sunrises, like you
said.
So we would love every place to be more in line with the
sun. And as you said, states have different needs, you know,
needs to get closer to that idea.
Senator Young. Thank you, Doctor.
Dr. Harkey.
Dr. Harkey. So we did not have a preference in our study
for one time or the other in terms of how you set it. What our
study showed was that the risk of fatalities for pedestrians
and bicyclists in particular rises at night, and it rises for
all motorists as well at night.
So the real key is, regardless of which decision you make
and which time zone you use, you have got to make sure that you
are putting interventions in that is going to help with those
who are traveling in those dark hours, whether it is more in
the morning or more in the afternoon and evening, that is the
real key, and particularly for pedestrians and bicyclists, who
are the overwhelming number of fatalities that are occurring in
those dark hours.
Senator Young. I see. I am very much over time.
I see that Mr. Karen has something he wants to say, so I
have been given leave by the Chairman. Please, go ahead.
Mr. Karen. I just want to point out that Senator Scott's
bill, the Sunshine Protection Act, kind of threads the needle.
It creates a Federal Daylight Saving Time but allows every
state to opt out if they choose. So I think that is maybe the
best answer here.
Senator Young. Good point. All right.
Thank you, Chairman.
The Chairman. Thank you, Senator Markey.
STATEMENT OF HON. EDWARD MARKEY,
U.S. SENATOR FROM MASSACHUSETTS
Senator Markey. Yes. Thank you, Mr. Chairman, very much. So
it is 1985. It is my fifth term in the U.S. House of
Representatives, and I become the Chairman of the Energy
Subcommittee on the Energy and Commerce Committee. And
searching through the jurisdiction of this wonderful
subcommittee is, time. I guess somebody is going to have to be
Chairman over time. And it is me. I am Chairman of time.
And nothing had been driving me crazier than the birds
chirping, you know, at 5 a.m. in the morning. It is sunshine
out. It is the end of April. This is not good. So I began a
negotiation with Bill Goodling, who is a Republican from
Pennsylvania, to move time. And it was a hard, grudging
discussion, but I was able to move it from the end of April to
the beginning of April in 1986. And so that changed it, because
at that point it was 6 months daylight, 6 months standard.
So I was able to claw back three weeks, pretty much to
right now. Otherwise, we would still be another two or 3 weeks
where there is no Daylight Savings Time. Then Congressman
Goodling left, and so in 2005 I am still on the Energy
Subcommittee. So with Fred Upton, who is a Republican from
Michigan, we cut another deal, and we moved it to the beginning
of March. And we also said, let us put Halloween in Daylight
Savings Time, and so we moved it into the beginning of
November.
So at that point, I am at 8 Daylight, 4 Standard. OK. So I
am kind of proud of my two bills Changing Time. You know, they
started to call me the Sun King, which I was kind of proud of,
because those are big bills, Mr. Chairman, that is moving time,
and the whole world then starts to move to that standard.
So we had to stop there. And then two years ago, Senator
Rubio and I, we had a bill to do Daylight Savings Time year-
round, and it passed by unanimous consent out on the floor of
the Senate. It was then stalled in the House, never had a vote
over there. But I consider this kind of an inexorable march
toward more sunshine that people can enjoy, not while they are
asleep, you know, having the sun come in early in the morning.
So that is my goal. My goal is just to make sure people get
more sunshine in the evening, when they can use it, especially,
as I heard your opening statement, Mr. Chairman, as our economy
has changed, and we are not an agricultural-predominant economy
any longer, although farmers play a vital role in our society,
but we are more into the economy that we all live in today.
So I guess my first question, Mr. Karen, is how would
extending evening daylight support small businesses in your
industry?
Mr. Karen. It would add to the golf industry at least $1
billion of economic activity. The average golf course would see
an increase in approximately $250,000 in revenue. And I mean,
that is an economic argument. But the golfers around America,
the 30 million golfers would get to enjoy all of that. So that
is the argument.
Senator Markey. Right. But it is also true that, let us
just go back to 1986, it is hard to start your Little League
practices if it is still dark in the evening at the end of
April. The kids are still not going to be allowed out into the
dark, or you are playing tennis or walking around. So that
change was very important to us in 1986.
Mr. Karen. Yes. Yes.
Senator Markey. And then again in 2009?
Mr. Karen. My brother happens to be an athletic director at
a high school, and he said: We do not like having to spend
money on lights for every single activity that happens after
school.
Senator Markey. Yes. So would an additional hour of evening
sunlight help businesses save money on energy costs from not
having to turn the lights on early, much less athletic?
Mr. Karen. Well golf, we do not light the golf courses, so
it would not be an energy savings for us. It is mostly about
health and economic.
Senator Markey. Health and economic, yes.
And Mr. Yates, what does your research say about the
benefits of ending the switch twice a year between Daylight
Savings Time and Standard Time?
Mr. Yates. Thank you, Senator, for the question. And I
appreciate the nickname that you got. It is better than the
nickname that the Comedy Central, the ``Daily Show'' called me
the Time Wizard, and so I was--I was not sure if I should be
offended or not
Senator Markey. I am going to keep Sun King for myself. OK.
Mr. Yates. Sun King is way better than Time Wizard, right.
Senator Markey. Yes. And I like that title.
Mr. Yates. Yes.
Senator Markey. Yes.
Mr. Yates. The detrimental effects of switching the clocks
are super clear, and it seems like we have got pretty much
unanimous agreement about that at this point. And what is
delightful about it from my perspective is to hear you tell
these stories, because you clearly have been a pioneer on this
for a long time. And what is great is that this has never been
at all a partisan issue. It has always been a completely
bipartisan issue, when you look at the 24 states that have
enacted something to it.
Senator Markey. Can I say this as well? And opposition, it
has always been bipartisan.
Mr. Yates. Yes.
Senator Markey. Because I had to negotiate with
Representative Goodling, who is a Republican, you know, on the
other side. But I had Republican, Carlos Morehead from Orange
County was on my side, a Republican, and I had to negotiate
with Larry Craig, who was the Senator from Idaho. He was the
Senator before Jim Risch. So I had to negotiate with him on
this. He was in opposition. But I had Fred Upton from Michigan,
who was a supporter.
So it has always been bipartisan on either side, you know,
these coalitions that are there. And so that is the only way,
from my perspective, that we are going to be able to work here
as well in order to make some progress. And you know, it is--we
just have to make Daylight Saving Time permanent, in my
opinion, one way or the other, or at least get more, we need
more sunshine, you know.
And the reason, Mr. Chairman, it is from my perspective, it
just--when the sun is out, it just increases the likelihood
that the corners of people's mouths are going to be turned
upwards. They are going to be happier when the sun is out. They
are going to be feeling good. It is why so many people move to
Texas, by the way, and not Florida.
[Laughter.]
Senator Markey. It is not the politics; it is the sun they
are chasing, right. So this is, from my perspective, a
universal feeling, right, that when that sun is out and they
can go out and enjoy it in the evening, it just makes all the
difference in the world to them, and so we have to find a way
here of resolving these issues to be able to deal with it.
And I know there are disagreements on it, including, I know
Karin Johnson is here from Massachusetts, and she is on the
other side of the issue, which I respect. So it is just a big
conversation that I hope we can resolve, because I just think
it is for the benefit of people's happiness just to have that
sunshine available. They can do a lot more in the sunshine in
the evening than they can do early in the morning.
And I thank you, Mr. Chairman, for the opportunity here.
The Chairman. Thank you, Your Majesty.
[Laughter.]
The Chairman. And I will say, I did not know that my friend
from Massachusetts had acquired the nickname the ``Sun King,''
which, the previous Sun King, of course, was King Louis XIV in
France, whose best-known statement was ``L'etat, c'est moi'' I
am the state, which may explain the differences between Senator
Markey and myself on the size of government.
Senator Markey. Well, I think President Trump is quoting
King Louis very favorably.
The Chairman. That is a fair point, since he did, in fact,
tweet out ``L'etat, c'est moi.''
Senator Markey. I think I did--I saw, I did not know he
knew French, but I think he, in fact did--in fact, quote
favorably not even--as you are. You are doing it with a very
high risible coefficient, I mean, you are doing it jokingly. I
think he was serious.
The Chairman. Well----
Senator Markey. Although, I will say this: I think you gave
the President good advice two days ago acting. We will call it
more like King Louis then.
The Chairman. Well, I will note, as you know, I lived three
years in Massachusetts, and I remember my third year of law
school, where it snowed in the month of May, which I thought
was positively immoral. And as you noted, the sun is a very
good recruiter for the Great State of Texas. I am fond of
saying, you cannot shovel sunshine, and that is a gift.
Senator Markey. And I will give you some news that the
winters in Boston are now 6 degrees warmer than they were in
1970 because of climate change. So our ponds do not even freeze
over in the winter anymore, much less snowing in May. So maybe
kids from Texas going to law school up in Boston now enjoy May
a lot more than they used to.
The Chairman. All right. So I am going to ask a couple more
questions, then we are going to wrap up the hearing.
Mr. Karen, give us your best argument why recreational
daylight is so important to your members?
Mr. Karen. My members deliver joy for a living, and they
happen to run businesses making that happen. So to them, if
they saw more people in the afternoons and the evenings
enjoying the outdoors with each other, it is why they get out
of bed. It is why they do this. So they will have better lives
as business owners. They will be able to pay the bills a little
bit better and reinvest in their businesses if they had a
little bit of a boost more in the afternoons and evenings.
The Chairman. That was helpful. Although I will say, on the
delivering joy, I could not help but think of, I think, the
best comedy riff ever done, which is Robin Williams' on golf.
Senator Markey. I have seen it.
The Chairman. Which I will note is profane but screamingly
funny. And he points out that golf was invented by the Scots
and how infuriating it can be at times. And he said: ``I know,
we will call it a stroke, because when you miss, you want to
have a stroke.''
[Laughter.]
Mr. Karen. Very good.
The Chairman. All right, Dr. Johnson.
[Laughter.]
The Chairman. Would shifting time zones slightly address
the concerns for communities that are in dark zone areas if the
clock were permanently set on Daylight Saving Time, does
shifting the time zones make a difference?
Dr. Johnson. So we would encourage all states to be within
their sort of time zone that is closest to the sun being
overhead at noon. So, for example, like Indiana being more in
the Central Time Zone versus the Eastern Time Zone would help
get them more aligned with the sun. But it should be Standard
Time. So there has been a push on the East Coast to have us in
Atlantic Standard Time. That is the time set for Bermuda. That
is not the time set for any of the East Coast.
So you know, we want permanent standard Eastern Time, not
permanent standard Atlantic Time, which is the exact same as
permanent Daylight Saving Time.
The Chairman. Dr. Harkey, what has your research found as
it relates to traffic accidents immediately following a time
change?
Dr. Harkey. So that is what we were looking at as part of
our research, was in that 5-week period before and the 5-week
period after the time change. And when we fall back in the
fall, vehicle occupant deaths go down about 7 percent. And when
they spring forward, vehicle occupants' deaths go up about 12
percent, and the exact opposite with pedestrian fatalities.
So when we fall back pedestrian fatalities rise 13 percent,
and then when we spring forward, they go down 24 percent. And
so the net effect is almost zero between pedestrian and
vehicle--pedestrian, bicyclists, and vehicle deaths. And so
that is why our research really does not come out strongly in
favor of either one.
But what is clear is that darkness matters. And that is
where we do about a quarter of our travel at night, and yet
that is when 50 percent of the vehicle occupant deaths occur,
and when more than three-quarters of the pedestrian deaths
occur. So regardless of what policy decision is made with
regards to the time and where we set the clocks, we have to
make sure we are continuing to improve our infrastructure,
continuing to improve vehicle technology that will address the
safety risk that we have at night in dark conditions.
The Chairman. So you just said darkness mattered, and it
occurred to me, an alternative title for this hearing, instead
of ``If We Could Turn Back Time,'' might have been ``Hello
Darkness, My Old Friend.''
All right. Look, this hearing was important, and I wanted
to hear all this testimony, because I personally struggle with
the two choices here. Because it is a question of: what do you
care about more sunshine, and joy, and fun, and money, or
health, mental health, physical health? And the honest answer
for most people is, ``Gosh, I care about all that stuff. So
that is not an easy tradeoff.
The alternative that has been suggested is, let each state
make that decision. And I guess it has been pointed out that
Senator Scott's Bill does a version of that by picking Daylight
Saving Time but then letting states opt out.
Let me ask a practical matter: Does that work?
Functionally, how confusing is that, having everyone pick
different times, how does that work for commerce, for life, for
knowing what the hell time it is? Let me have each of you
answer that.
Mr. Yates. Senator Cruz, thank you for that. The one little
part of Senator Markey's history about when they changed the
time in November was that the proposal was to move Daylight
Saving Time to finish at the end of November. And the airlines
came back and said: No, no, no, no. We do not want a time
change in the middle of our busiest travel season. And so they
were going to scrap that, and then they got the extra week to
put it in.
So time is always complicated. And the system that we have,
the system that we--excuse me--the system that we have is
complicated, but it is complicated because it is a human
creation, right. The sun moving around the Earth does not
actually have anything to do with time. Time is the agreement
that we have about what 10 o'clock means, because we do not
want to go around saying, you know, the Committee hearing will
start when the sun is two hands above the horizon.
We need this system. But the system has this bug right now,
and the bug is Daylight Saving Time. It is the switching of the
clocks. And so if we have a little bit of time, a couple of
years, so that the individual states can address all of these
complexities and make those decisions, then we will be able to
get rid of this bug permanently. It is something that we have
been stuck with since World War I, and this is our opportunity
to finally fix it.
The Chairman. Mr. Karen.
Mr. Karen. You know, I am not going to say that government
solutions cause more confusion, but you can imagine in this
scenario that Florida is on Daylight Saving Time, Georgia right
above it on Standard, South Carolina is on daylight, et cetera,
in the same spot, because maybe special interests of all kinds
made that happen.
So I already have problems remembering which state is in
which time zone as it is right now, sometimes the Border
States, and add to that: Oh, they are in Central and they are
on Standard. Oh, what time is it there exactly? So I can see
where this causes more confusion. I wish I had a better answer
for you on that one, but could we adjust and figure that out
quickly? I do not know. I see it as problematic, but it may be
the only way to thread the needle.
The Chairman. Dr. Johnson.
Dr. Johnson. Yes, I think, you know, the economy, the
transportation industry, certainly needs consistency and
alignment. So we want to make this change once. We do not want
to pick something that is tried and then failed twice before,
such that we spend lots of money fixing it again in a few
years. You mentioned the economy, which again, you know, is so
important, and you know, the majority of our workers start work
early. The average work start time is 7:55 in the morning. So
we would be forcing people all winter to go to work in the
dark, really affecting their productivity and economics.
And so while certain businesses are going to have different
benefits of the sun, I actually do want to give sun to people
when they use it, when they use it to get up, when they use it
to be healthy, when they use it to be more productive and
efficient at work and to improve the overall economy, not just
niche businesses like the golf industry that have shown they
can be very successful in Standard Time, like in Arizona.
The Chairman. Dr. Harkey.
Dr. Harkey. Strictly speaking from a road safety
perspective, I am not sure it would make any difference if
states had the right to select the time, because it is, again,
about the amount of light, the amount of ambient light during
the times of travel. And so I do not think it would have an
impact, personally. It would probably confuse me. But that is
if we had that problem.
I will give you a quick anecdote. Almost 40 years ago, we
were collecting speed data in New Mexico and Arizona as part of
a research study. Had no idea at that time, being right out of
school, had not really paid attention that Arizona did not
bother to go to Daylight Saving Time, so that all of our
equipment was an hour off when we went to pick up all the speed
data, and we had to adjust it after the fact.
And so I think you would have those kinds of things, right,
that could work their way into the system, unintentional
mistakes, if we were to get into a system where we had a lot of
different time zones going on.
The Chairman. Well, I, for one, am thankful for these magic
devices that we carry, that when I land on a plane, I look down
to figure out what time it is, because I am on a lot of planes
and it changes.
I want to thank each of the four of you. This has been very
helpful testimony, and you all have different perspectives, so
each of you has added significantly to it.
Senators will have until the close of business on Thursday,
April 17, to submit questions for the record. The witnesses
will have until the end of the day on Thursday, May 1, to
respond to those questions.
And this concludes today's hearing. The Committee stands
adjourned.
[Whereupon, at 11:29 a.m., the hearing was adjourned.]
A P P E N D I X
Response to Written Question Submitted by Hon. Ted Cruz to
Scott Yates
Question. Current law allows states to opt out of daylight saving
time (DST) without an act of Congress. In fact, both Arizona and Hawaii
have done so. How do you explain why only two out of 50 states have
decided to opt out of DST?
Answer. There are several reasons why most states have not opted
out of DST:
1. Public preference: More daylight in the evening is generally
popular, and legislatures tend to reflect the will of the
people.
2. Business alignment: Many industries prefer later daylight hours,
and states often seek to stay in sync with national economic
patterns.
3. Regional coordination: States worry that being out of step with
neighbors could cause confusion and disruption for businesses
and travelers.
Additional context:
Not all of Arizona has opted out of DST. Navajo Nation
lands, which span multiple states and are larger than 10 U.S.
states by area, still observe the time changes.
After the Uniform Time Act of 1966, four states initially
chose to stay on Standard Time year-round: Hawaii, Arizona,
Michigan, and Indiana. Michigan and Indiana later reversed
course, opting to rejoin the spring and fall time changes
rather than remain in Standard Time year-round.
Regulating time zones is more complicated than it might seem.
Today, several states (such as Indiana, Tennessee, and Nebraska)
already have internal divisions. Rather than creating new confusion,
the Sunshine Protection Act would actually reduce complexity by locking
the Nation into a consistent time system, improving predictability for
commerce. It would also give those states that are split the
opportunity to re-unite into one time zone.
Finally, it is important to note that in 1966, Congress did not
have the benefit of decades of medical research now available. Studies
today overwhelmingly show that the biannual clock changes are harmful
to public health and safety--a fact that strengthens the case for
Federal action by passing the Sunshine Protection Act while allowing
states to have the rights, and the time, to choose which time zone they
want to lock into.
______
Response to Written Questions Submitted by Hon. Maria Cantwell to
Scott Yates
Public Opinion on Daylight Saving Time: Sunrises and sunsets occur
at significantly different times within the same time zone. For
instance, on the darkest day of the year, the sun rose in Seattle at
7:55 AM, but in San Diego, California, it rose at 6:47 AM, over an hour
earlier. The differences can be even more pronounced in the Central
Time Zone, where in Williston, North Dakota, the sun rises at 8:42 AM
while it rises nearly two hours earlier in Mobile, Alabama.
Question 1. How does a state's location within a time zone impact
people's opinions on Daylight Saving Time?
Answer. A state's location within a time zone likely affects public
opinion on Daylight Saving Time--but no polling has directly measured
it.
Most public opinion research on DST is conducted at the
national or state level.
There is little to no polling that focuses on east-west
variations within time zones.
Sunrise and sunset times can differ by more than an hour
within a single time zone, as your examples show, and those
differences likely shape people's views--but the data simply
doesn't exist yet.
This geographic complexity is why I recommend a two-year
implementation period for the Sunshine Protection Act.
A two-year window would give states, communities,
businesses, and school districts time to experience both winter
and summer under permanent Daylight Saving Time.
Local policymakers could adjust school hours, work
schedules, or advocate for a time zone shift based on real-
world experience.
Congress would ensure a consistent national policy while
allowing flexibility for local adaptation--balancing Federal
leadership with local realities.
Question 2. Has there ever been a nationwide poll of public opinion
on ``locking the clocks''? What do available polling data tell us about
people's opinions on whether we should switch to permanent standard
time, permanent Daylight Saving Time, or keep the seasonal switch?
Answer. There have been many polls about ``locking the clocks,''
but the quality varies depending on how the questions were asked.
Many polls ask vague questions like ``Do you favor DST?''
without clarifying whether that means permanent DST, permanent
Standard Time, or keeping the seasonal clock changes.
The clearest national poll in recent years asked voters
directly about the Sunshine Protection Act:
Strongly support: 45 percent
Somewhat support: 23 percent
Somewhat oppose: 7 percent
Strongly oppose: 7 percent
Don't know/No opinion: 18 percent
State legislative action also reflects strong support for locking
the clocks into permanent Daylight Saving Time:
Since 1966, two states (Indiana and Michigan) initially
opted for permanent Standard Time but later switched to
seasonal DST.
Only two states (Hawaii and most of Arizona) have remained
on permanent Standard Time.
24 states have passed legislation to adopt permanent DST if
authorized by Congress, with many others considering similar
measures.
Public opinion on keeping the seasonal clock change is relatively
small--and outweighed by clear evidence of public harm:
Polls suggest about 10 percent of people favor continuing
the clock changes.
However, as with other public safety issues--for example,
the Federal ban on metal-tipped lawn darts after they caused
three fatalities--action is justified when lives are at stake.
The biannual clock change is linked to:
At least 20 additional traffic deaths each year.
Significant increases in heart attacks, strokes, and
other medical emergencies, contributing to hundreds or even
thousands of premature deaths annually.
The best way forward is to act now to end the clock-changing, while
allowing states flexibility to adjust.
A two-year implementation period would allow states,
businesses, and schools to experience both winter and summer
under both simulated time structures.
States would have the ability to adapt: adjusting school
start times, business hours, petitioning for a time zone change
if appropriate, or even holding an election to let voters
decide directly.
This approach fixes the critical public safety problem
immediately while respecting local preferences for how best to
align daily schedules.
If Congress could act decisively to ban lawn darts after three
deaths, surely it can act now to end a practice that costs hundreds of
lives each year.
______
Response to Written Question Submitted by Hon. Ben Ray Lujan to
Scott Yates
Question 1. If your goal is to end clock changes and the health
data supports permanent standard time, why not move everyone to
standard time and allow Daylight Standard Time if states want, rather
than the other way around?
Answer. I would certainly support this.
The problem is that while I am the founder of the wildly popular
#LockTheClock movement, the reality is that I am just a lone citizen
who blogs and testifies about this issue as a hobby.
In other words, my support is not nearly enough.
What we need is the support of health experts and business leaders.
Advocating for permanent Standard Time as the default position will
garner opposition from wide swaths of business groups, including
recreation, retail, outdoor activities, etc. That will, in turn, lead
to opposition from health groups because advocating for Standard Time,
in reality, is advocating for keeping the status quo, which includes
the deadly clock changing.
As Sen. Lujan knows all too well, we should do everything we can to
reduce the incidence of strokes in the U.S. While changes to diet,
exercise, medication and more are important, they are also lifestyle
changes that are difficult to legislate.
The clock-changing, however, can be fixed and research published in
the medical journal Circulation (V. 118, N. 3) is clear that the clock
changing causes a significant spike in the number of strokes that
require hospitalization.
Interestingly, most other negative health outcomes associated with
clock changing apply only in the spring change. Heart attacks, for
instance, go up after alarm clocks jolt people awake an hour earlier
than their bodies expect. Traffic accidents spike. Hospital errors
jump. In the fall when people get an extra hour of sleep, there is no
spike in heart attacks and we don't see the other negative health
impacts.
But strokes requiring hospitalization go up after the spring
forward change, and also after the fall-back change. Clock changing in
general causes more strokes.
So from a health perspective, the most important thing to do is to
take action to Lock the Clock, and the most effective way to do that is
to enact the Sunshine Protection Act, and do so with a two-year
implementation so that individual states can have the science-based
discussion about which time is most appropriate for that state given
its physical location.
As someone who understands firsthand the impact of stroke, your
leadership on this issue could help save countless lives across
America.
______
Response to Written Question Submitted by Hon. Lisa Blunt Rochester to
Scott Yates
Question. How does a state's location within a time zone impact
their opinions on Daylight Saving Time?
Answer. I haven't seen any polling specifically on this issue.
The question, however, gets to a crucial part of what must be
considered by the U.S. Senate when looking at a national policy.
Typically a national policy applies to all citizens equally, but this
one is quite different.
Part of the reason there isn't polling is that typically pollsters
ask questions of a national or perhaps a state sample group. There are
no commonly used geographic areas that would make it possible to even
conduct such polling.
That is why my suggestion to Congress is to modify the Sunshine
Protection Act to have a two-year implementation phase.
Right now this debate is theoretical, and because it's been debated
for so long, local policy makers and indeed the public have not taken
action because they haven't had any reason to think that a healthy
change is coming to the way we change the clocks twice per year.
If Congress were to enact the Sunshine Protection Act--and have it
implemented after the ``spring forward'' change in March two years
after enactment--then every state legislature, every school board,
every business would have the opportunity to live through a winter and
a summer estimating where the sun is in relation to the clock. State
legislatures, if they like, could even have statewide elections to
determine if a state will lock the clock in permanent Daylight Time or
Standard Time.
In that way, the U.S. Congress would be properly fulfilling its
role in regulating interstate commerce and the regulation of time
zones, but local communities would be able to adopt either the
appropriate time for their state, or adjust their schedules in ways
that reflect their local realities.
______
Response to Written Question Submitted by Hon. Maria Cantwell to
Jay Karen
Question. On the question of what the impact would be if adjoining
states were to elect to have different daylight time designations. I am
pleased to offer a brief reply.
Answer. The issue of what ``clock'' a state may be on in the future
would be a consideration when people make plans to spend a morning,
afternoon, day or road trip to play golf. If golfers, especially living
near state borders where time changes (such as time zones and Daylight
or Standard time) could impact plans, do not pay close attention or
miscalculate the sunrise and sun setting times, they could experience
frustration.
With adjoining states having different ``clocks,'' tee time booking
systems and tour operator systems will have to be specifically
programmed to ensure daylight considerations are clear and understood
at the time of booking. It's easy to see people making this mistake: a
2:00 pm tee time in one state allows them to finish before dark,
whereas a 2:00 pm tee time in a neighboring state (on the same golf
road trip) might be curtailed by darkness.
To be honest, it's hard to even imagine the cascading effect of
having states on different time zones and different ``clocks'' for the
sun. While it's easy to posit this issue as a ``states' rights'' one,
it's not hard to see how confusion may be sowed by it. I'm sure modern
technology in our smartphones will help us get acclimated to such
changes, but it will be interesting to see (if it happens).
In the golf industry, we simply know that later-afternoon sunlight
is an important driver for increased play, which leads to better health
and a better economy. NGCOA would be amenable to all states recognizing
Daylight Saving Time year-round, but as we see in Texas and New Mexico,
whose communities border Arizona, golfers can adapt to the different
daylight periods.
______
Response to Written Question Submitted by Hon. Ted Cruz to
Dr. Karin Johnson
Question. Current law allows states to opt out of daylight saving
time (DST) without an act of Congress. In fact, both Arizona and Hawaii
have done so. How do you explain why only two out of 50 states have
decided to opt out of DST?
Answer. There is strong economic, communication (radio/cell phone),
and transportation interest for states to remain in alignment with
neighboring states and/or to be in alignment with certain states, such
as a desire to align with Wall Street. Because any state can establish
permanent Standard Time, there has been more hesitation to pass laws
for standard time on a state level often wanting to defer to the
Federal government to mandate a coordinated change so as not to cause
major misalignment between states.
Additionally for many years there has been a large degree of
misinformation spread stating that permanent daylight saving time would
lead to improvements in health, mood and safety despite the data to the
contrary. Cited data relies on the presumption that the only harms of
daylight saving time are the twice yearly switches and disregards any
harm from permanent daylight saving time itself. Rather the long-term
effects of living on Daylight Saving Time increases the risk of chronic
diseases and worsens safety and productivity to a greater degree than
the short-term harms after the switching of clocks in the spring and
fall.
Over the last 4 years, however, especially since the medical and
scientific position statements supporting permanent standard time and
increasing recognition of the problems with permanent daylight saving
time, there has been growing political and public interest in adopting
permanent standard time. This year there are more states with bills
asking for permanent standard time than for permanent daylight saving
time. On the other hand, over the last several years, there has been a
rapid decline in the number of states passing bills requesting
permanent daylight saving time. This aligns with what is being seen
with an increasing number of national polls favoring permanent standard
time. The most recent National gallop survey was strongly in favor of
permanent standard time (48 percent) compared to permanent daylight
saving time (24 percent).
______
Response to Written Questions Submitted by Hon. Maria Cantwell to
Dr. Karin Johnson
Health Impacts of Daylight Saving Time: In your testimony, you cite
several studies that have found that Daylight Saving Time is associated
with worse sleep quality because later sunrises disrupt our natural
circadian rhythm.
Question 1. How are the health impacts of switching to Daylight
Saving Time different from jet lag caused by traveling between time
zones?
Answer. When we travel from one time zone to another, the new
timing of sunrise and sunset in our new location resets our circadian
rhythms to that new time zone. This natural reset of our internal
clocks typically occurs at the rate of 1 to 1.5 days per 1 hour of time
zone change (that is, we typically realign to our new environment
within a day for shorter distances and within a week for longer trips).
Until our bodies adjust to the new local sun time, we experience a
short-term circadian misalignment known as jet lag, the signs of which
include fatigue, sleepiness, sleep disturbances, difficulty
concentrating, digestive issues (such as upset stomach, diarrhea, and
constipation), irritability, mood disturbances, headaches, and
dizziness.
If you are a very frequent traveler, then the constant disruption
to circadian rhythms can be similar to the risks of shift-work
disorder. These include increased rates of cancer, heart disease, high
blood pressure, obesity, diabetes, irritable bowel syndrome,
depression, and other metabolic and mood disorders. These are also
similar to what is seen with the effect of setting clock time later
under Daylight Saving Time.
When we change clocks to Daylight Saving Time, we do not change our
environmental light timing. Our circadian rhythms and bodily hormones
remain more aligned to the sun's time, and this creates a long-term
misalignment between our internal rhythms that are set by the sun and
our social schedules that are set by the clock. This misalignment
persists throughout the entire Daylight Saving Time period. Factors
that increase the negative impacts of Daylight Saving Time include:
1. Living on the western end of a time zone, because this is where
misalignment of clock time and sun time is largest.
2. Being a teenager or night owl, because their rhythms are
naturally already delayed, compared to other population groups.
3. Having a start time before 8:30 AM, because their earlier work or
school schedules necessitate earlier bedtimes to get sufficient
sleep before their morning alarms sound, and these earlier
bedtimes are often thwarted by the extended hours of evening
daylight.
4. Observing Daylight Saving Time in winter, when unavoidably
shorter periods of sunlight make for darker mornings, which
deprives exposure to natural light at the time of day when our
bodies and brains need it most.
When clock time is moved later by Daylight Saving Time, our body
rhythms are less able to anticipate our daily actions. In the morning,
the alarm rings before our body naturally wants to get up. In the
evening, we are less able to fall asleep at the time you need to go to
bed to get enough sleep at night. This may lead to chronic sleep loss.
Even small amounts of sleep loss can significantly increase risks of
many health problems, including stroke, heart disease, obesity,
depression, and dementia.
Circadian disturbances alone can also negatively impact our health,
even with adequate sleep. An example of this is social jet lag, such as
when we force ourselves to wake much earlier on weekdays than when we
naturally wake on weekends. This continual change in daily timing can
cause digestive and metabolic hormones to be produced out of sync from
when we are eating, which can lead to poorer processing of food,
irritated bowel, obesity, and diabetes. Circadian disruptions increase
wear and tear on our immunity and healing, which can increase risks of
infections, cancer, and dementia. Alertness, sleep quality, cognition,
mood, and performance are also strongly affected by circadian
regularity or irregularity.
[GRAPHIC NOT AVAILABLE IN TIFF FORMAT]
Question 2. In Washington state, the latest sunrises in the darkest
parts of the year are near 8 AM, even on standard time. If the sun rise
is already later than when most people are going to work or school,
will a switch to Daylight Saving Time make a difference on sleep
quality?
Answer. When waking too early (relative to sunrise) is a problem,
the answer is not to wake even earlier (as Daylight Saving Time
covertly makes us do).
Currently, Seattle has 0 days with sunrise later than 8 AM, and a
latest winter sunrise of 7:58 AM, which would not change under
permanent Standard Time. Permanent Daylight Saving Time would postpone
Seattle's sunrise past 8 AM for 112 days (nearly 4 months), and it
would delay its latest sunrise to 8:58 AM.
Seattle's longitude is 122 degrees west, and the meridian for
Pacific Standard Time is 120 degrees west. This close alignment between
sun time and clock time keeps sunlight balanced across morning and
evening, for optimal circadian health. When work schedules cause us to
miss natural sunlight exposure both before and after work, then other
``zeitgebers'' (time cues) have more influence on setting our rhythms,
such as artificial light, or when we eat our meals. But these still
tend to balance around noon.
Permanent Daylight Saving Time in Washington and elsewhere would
delay winter sunrises until after most people go indoors to work and
school for several months at a time. When morning sun light exposure is
missed, evening sunlight exposure causes our circadian rhythms to
delay.
This disruption of our circadian rhythms leads to serious health
and performance issues.
While artificial light in the morning can help counteract circadian
disorders such as depression and chronic fatigue, no artificial light
can compare in brightness and quality to natural sunlight (even when
filtered through clouds or precipitation). Furthermore, Daylight Saving
Time's unseasonable exposure to evening daylight compounds the problems
caused by lack of morning light. Unless individuals can expose
themselves to high levels of artificial light (for example, 30 minutes
of a 10,000-lux light box) each morning, as is prescribed for seasonal
affective disorder and delayed sleep-phase syndrome, and they can
purposely avoid artificial light in the evening (which they are more
likely to be exposed to because they are more likely to stay up later
during Daylight Saving Time), then their rhythms are likely to become
delayed and chronically misaligned.
These negative effects were seen when Russia tried permanent
Daylight Saving Time between 2011 and 2014, before their nation finally
switched to permanent Standard Time. 16 percent more adolescents had
over two hours of social jet lag during permanent Daylight Saving Time
compared to permanent Standard Time. In other words, one hour of clock
change led to over two hours of circadian misalignment in susceptible
individuals.
Many studies show that having a clock time set one hour later than
sun time can negatively affect both sleep duration and quality. The
effect is greater for locations on the western ends of time zones,
where circadian alignment is already delayed. Circadian rhythms most
obviously affect sleep, but they also play very important roles in the
timing of all bodily systems. Thus a delayed rhythm negatively effects
metabolism, digestion, immunity, healing, hormones, heart health, and
brain function, to name a few.
______
Response to Written Questions Submitted by Hon. Maria Cantwell to
Dr. David Harkey
Lighting Conditions and Roadway Safety: In the 1970s, the United
States piloted year-round Daylight Saving Time. At the time, it was
widely reported that mothers raised significant concerns about their
children walking to school in the dark in the winter. They understood
that visibility was a serious safety concern. Nationwide, over 70
percent of fatal accidents involving pedestrians occur at night.
Question 1. How do low light conditions impact roadway safety for
drivers and pedestrians?
Answer. Low lighting levels at night reduce a driver's ability to
detect and recognize pedestrians. It is estimated that the time between
6:00 p.m. and 7:00 a.m. accounts for around 22 percent of miles
traveled,\1\ but in 2023 55 percent of all traffic fatalities and 80
percent of pedestrian fatalities occurred in the dark or low light
(including dawn/dusk).
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\1\ EPA (2020). Population and activity of onroad vehicles in
MOVES3. EPA-420-R-20-023. https://cfpub.epa.gov/si/
si_public_record_report.cfm?Lab=OTAQ&dirEntryId=328870
Question 2. No matter what time the sun goes down, what roadway
improvements can cities and states make to reduce pedestrian
fatalities?
Answer. The clearest result from our daylight saving time study was
that pedestrians and bicyclists are at greater risk in low-light and
dark conditions, regardless of what time of day those conditions occur.
Having sidewalks in urban and suburban areas or separated paths or
paved shoulders in rural areas helps to ensure pedestrians are not
walking in the vehicle travel lanes.\2\,\3\ The addition of
lighting along these corridors and at intersections also makes a
difference.\4\,\5\ At crossing locations, the use of
rectangular rapid flashing beacons and pedestrian-triggered lighting
can increase motorist yielding behavior.\6\
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\2\ Elvik, R., Høye, A., Vaa, T., & Sørensen, M.
(2009) The Handbook of Road Safety Measures. Emerald Group Publishing,
Leeds, England.
\3\ Gan, A., Shen, J., & Rodriguez, A. (2005). Update of Florida
Crash Reduction Factors and Countermeasures to Improve the Development
of District Safety Improvement Projects. Florida Department of
Transportation. https://fdotwww.blob.core.windows.net/sitefinity/docs/
default-source/research/reports/fdot-bd015-04-rpt.pdf
\4\ Retting, R. A., Ferguson, S. A., & McCartt, A. T. (2003). A
review of evidence-based traffic engineering measures designed to
reduce pedestrian-motor vehicle crashes. American Journal of Public
Health, 93, 1376-1598. https://doi.org/10.2105/AJPH.93.9.1456
\5\ Wanvik, P. O. (2009). Effects of road lighting: an analysis
based on Dutch accident statistics 1987-2006. Accident Analysis &
Prevention, 41, 123-128. https://doi.org/10.1016/j.aap
.2008.10.003
\6\ Hu, W., Van Houten, R., Cicchino, J. B., Engle, J., & Al
Shomaly, L. (2025). Effects of crosswalk illuminators and rectangular
rapid flashing beacons on speed reductions and yielding to pedestrians
at night. Transportation Research Record. https://doi.org/10.1177/
036119812
41310131
Question 3. What vehicle technologies can help protect pedestrians
when it is difficult for drivers to see?
Answer. There are two vehicle technologies that are most important
to help protect pedestrians. First, headlights--the original collision
avoidance technology. We have been rating headlights for nearly a
decade, and automakers have subsequently been improving their
headlights. We have been able to show that vehicles with headlights
with good ratings in our tests can reduce nighttime pedestrian crashes
by 23 percent compared to vehicles with poor-rated headlights.\7\
Second, automatic emergency braking with pedestrian detection. We have
shown that early systems reduced pedestrian crash risk by 32 percent
during the day but did not reduce pedestrian crashes in the dark.\8\
However, automakers are now improving these systems to work better at
night and score higher in IIHS's testing program.
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\7\ Brumbelow, M. L. (2022). Light where it matters: IIHS headlight
ratings are correlated with nighttime crash rates. Journal of Safety
Research, 83, 379-387. https://doi.org/10.1016/j.jsr.
2022.09.013
\8\ Cicchino, J. B. (2022). Effects of automatic emergency braking
systems on pedestrian crash risk. Accident Analysis & Prevention, 172,
Article 106686. https://doi.org/10.1016/j.aap
.2022.106686
Combatting Drowsy Driving: Sleep experts believe that Daylight
Saving Time impacts people's sleep quality, which could lead to more
people driving while they are tired. Driving while sleep-deprived has
similar risks to driving while drunk. The AAA Foundation for Traffic
Safety estimates there are over three hundred thousand crashes each
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year caused by drowsy driving.
Question 1. How can the vehicle safety requirements in the
Bipartisan Infrastructure Law mitigate drowsy driving? Which
technologies should USDOT be prioritizing?
Answer. There are several companies working on technologies to
monitor drivers, assess their level of distraction or lack of
engagement in the driving task, and potentially detect drowsy driving.
There are other groups working on technologies to detect alcohol
impairment prior to starting the vehicle and during the trip. All of
these technologies need to be pursued, given our state of road safety.
Remember, alcohol impairment, distraction, and drowsy driving
contribute to more than a third of our fatalities. We need to invest in
multiple technologies to find those that are most effective and
feasible. We also need NHTSA to issue the rule to mandate advanced
impaired driving technology as required of them under the Bipartisan
Infrastructure Law.
Question 2. What can state and local governments do now to improve
their infrastructure to address drowsy driving?
Answer. Drowsy driving often results in lane departure crashes,
either off the right side of the road into a fixed object, into an
adjacent same-direction lane sideswipe collision, or across a
centerline in a head-on collision. The use of rumble strips both on the
edge of the roadway and the centerline can be an effective way to alert
drowsy drivers.\9\ On approaches to intersections, the use of
transverse rumble strips or stripes, advance warning flashers, and
strobe lights in red signal faces can serve a similar
purpose.\2\,\10\-\11\
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\9\ Torbic, D. J., Hutton, J. M., Bokenkroger, C. D., Bauer, K. M.,
Harwood, D. W., Gilmore, D. K., Dunn, D. K., Ronchetto, J. J., Donnell,
E. T., Sommer III, H. J., Garvey, P., Persaud, B., & Lyon, C. (2009).
NCHRP Report 641: Guidance for the Design and Application of Shoulder
and Centerline Rumble Strips, Transportation Research Board, Washington
D.C. https://cmfclearinghouse.fhwa.dot.gov/studydocs/nchrp_rpt_641-
GuidanceRumbleStrips.pdf
\10\ Park, Y.-J. & Saccomanno, F.F. (2005). Collision frequency
analysis using tree-based stratification. Transportation Research
Record, 1908, 121-129. https://doi.org/10.1177/036119810
51908001
\11\ Srinivasan, R., Carter, D., Persaud, B., Eccles, K., & Lyon,
C. (2008). Safety evaluation of flashing beacons at stop-controlled
intersections. Transportation Research Record, 2056, 77-86. https://
doi.org/10.3141/2056-10
Safe System Approach to Roadway Safety: Roadway fatality rates in
the United States are 15 percent higher than they were a decade ago. In
Washington state, 810 people died in traffic in 2023, a 10 percent
increase from the year before and the largest number of traffic deaths
in the state since 1990.
Currently, three Federal agencies, the Federal Highway
Administration, the National Highway Traffic Safety Administration, and
the Federal Motor Carrier Safety Administration, work with State
Departments of Transportation, state law enforcement agencies, and
state safety agencies to improve highway safety. Often, these agencies
are siloed and lack meaningful communication and coordination.
We have learned from other industries, including the aviation
industry, that safety is the responsibility of everyone involved in a
system. In the aviation industry, we know that looking at safety
holistically and creating redundancy is essential to preventing
mistakes that could lead to fatal accidents.
Question 1. How do we create redundancy in safety measures to
prevent fatalities on our roads?
Answer. Redundancy is a key principle in the safe system approach.
Each of the Federal and state agencies mentioned is responsible for
part of the system, but no agency has decision-making authority for all
of the surface transportation system. At a minimum, there must be
deliberate and better communication between the agencies at the
executive level, but perhaps more critically at the staff level. The
staff are ultimately the ones who know what interventions work to
address specific problems on our roadways and how they can provide that
level of redundancy.
Question 2. What safety features can be incorporated into vehicle
and road design to ensure that one human error does not lead to a
deadly accident?
Answer. That is the question that should be asked for every
challenge we face--how do we prevent a mistake by a driver, pedestrian,
bicyclist, or motorcyclist from becoming a fatality? This is another
principle of the safe system approach--we are human, we will make
mistakes, but no one should die because of a mistake.
I will give you one example of vehicle and infrastructure
interventions to address a particular type of crash--running off the
edge of the roadway and striking a rigid object. We need good edge
lines, may use rumble strips or rumble stripes, include a paved
shoulder for recovery area, and may have a guardrail to prevent
striking that object.\9\,\12\-\13\ In the
vehicle, we now have technology to provide lane departure warnings and
lane-keeping systems. These interventions support each other to prevent
that run-off-road collision.\14\
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\12\ Dissanayake, S. & Galgamuwa, U. (2017). Estimating Crash
Modification Factors for Lane Departure Countermeasures in Kansas.
Center for Transportation Research and Education, Iowa State
University, Ames, IA. https://www.intrans.iastate.edu/wp-content/
uploads/2018/07/Kansas_lane-departure_CMFs_w_cvr.pdf
\13\ Park, J., Abdel-Aty, M. & Lee, J. (2016). Evaluation of the
Safety Effectiveness of Installing Roadside Barriers with Different
Driver, Vehicle, Weather, and Time of Day Conditions. Proceedings of
the 95th Annual Meeting of the Transportation Research Board, Paper No.
16-0678, Washington, D.C.
\14\ Cicchino, J. B. (2018). Effects of lane departure warning on
police-reported crash rates. Journal of Safety Research, 66, 61-70.
https://doi.org/10.1016/j.jsr.2018.05.006
Question 3. How does a safe system approach protect all the people
who use our roads, including pedestrians and people riding on transit?
Answer. Another principle of the safe system approach is to ensure
safety for ALL road users. We have clearly failed the most vulnerable
on our roadways--pedestrians, bicyclists, and motorcyclists--whose
deaths have increased 49 percent in the 10-year period from 2014 to
2023. From planning to design to operations, we have to consider the
context of the environment, including factors like who the road users
are, what types of vehicles use the road, and if the environment is
rural or urban. That context can then be used to build a safety matrix
of feasible infrastructure, vehicle, speed, behavior, and post-crash
care interventions that will protect all road users.
______
Response to Written Question Submitted by Hon. Lisa Blunt Rochester to
Dr. David Harkey
Question 1. What can states and local governments do now to improve
their infrastructure to address drowsy driving?
Answer. Drowsy driving often results in lane departure crashes,
either off the right side of the road into a fixed object, into an
adjacent same-direction lane sideswipe collision, or across a
centerline in a head-on collision. The use of rumble strips both on the
edge of the roadway and the centerline can be an effective way to alert
drowsy drivers.\9\ On approaches to intersections, the use of
transverse rumble strips or stripes, advance warning flashers, and
strobe lights in red signal faces can serve a similar
purpose.\2\,\10\-\11\
[all]