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By RWebb: studies have shown the exact opposite - talking on a cell phone detracts significantly more than when talking to a passenger in the car
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I have heard (& to a point share the opinion) a passenger is more aware of the immediate surroundings & will pick up on certain cues regarding their present situation. Thus they would tend to hold their thought & back off in a conversation if they perceive a driving situation which demands the full attention of the vehicle operator. This might explain the difference.
Of course the person on the other of a cell call will have no idea of what's happening & carry on. This is especially dangerous if the parties involved are arguing. I know of many individuals who'll relate their close calls (no pun intended) involving others driving while distracted plus the growing list of my own personal encounters. If my phone rings while I'm driving, I'll wait until I can find a safe & suitable place to pull off the road & return their call. Any person using my cell is aware of this & will usually leave a message.
As far as fines & such for infractions, we all know you can't legislate brains into the public & the laws are proving difficult to enforce. As some have suggested as per DUI - make talking on a cell while driving a form of anti-social behaviour. Some states & provinces have already introduced public awareness campaigns which unfortunately take time & a lot of lives will be altered, for all the wrong reasons, until this awareness becomes second nature.
Cheers
JB