The aftermath of Hurricane Irene made clear that Marylanders have no clue what to do when traffic lights are out, and no wonder: There is, incredibly, no law on the subject. The best solution would be to require motorists to slow down and be prepared to yield when approaching an intersection where a signal is not functioning. In some cases, that would translate to an all-way stop, but not always. Motorists would be expected to exercise caution but not be forced to treat all intersections as exactly the same.
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