Safe System Strategic Plan

Safe System 

Strategic Plan 
2 Safe System Strategic Plan
3 Safe System Strategic Plan

Foreword

The Safe System Strategic Plan provides a roadmap for the advancement of the Safe System Approach in 

the United States (U.S.). It describes the Safe System Approach, discusses the process involved in 

building the plan, outlines how to advance a Safe System mindset, and describes steps necessary to 

implement Safe System practices within the transportation community in the U.S. This plan focuses on 

the role of road system owners and operators in applying the Safe System Approach to design, build, and 

operate safer roads. However, practitioners and partnerships within other safety disciplines play an 

important role in helping to advance all elements of the Safe System Approach. This plan aims to educate 

transportation professionals on the effectiveness of the Safe System Approach while also offering 

guidance on how to prioritize safety in the U.S. as a means to achieving zero traffic fatalities.

Notice

This document is disseminated under the sponsorship of the U.S. Department 

of Transportation in the interest of information exchange. The U.S. 

Government assumes no liability for the use of the information contained in 

this document. This document does not constitute a standard, specification, 

or regulation and the contents of this document do not necessarily reflect 

official policy of the U.S. Department of Transportation.

This document contains images that are shown for illustration purposes only. 

For specific requirements, please refer to the 2009 edition of the Manual on 

Uniform Traffic Control Devices for Streets and Highways (MUTCD). 

The contents of this document do not have the force and effect of law and are 

not meant to bind the public in any way. This document is intended only to 

provide information regarding existing requirements under the law or agency 

policies.

The U.S. Government does not endorse products or manufacturers. 

Trademarks or manufacturers’ names appear in this report only because they 

are considered essential to the objective of the document.

Quality Assurance Statement 

The Federal Highway Administration (FHWA) provides high-quality 

information to serve Government, industry, and the public in a manner that 

promotes public understanding. Standards and policies are used to ensure and 

maximize the quality, objectivity, utility, and integrity of its information. The 

FHWA periodically review quality issues and adjusts their programs and 

processes to ensure continuous quality improvement.

Front Cover Image. Pedestrians crossing at high-visibility crosswalk. Source: Juan Ordonez/Unsplash.

Back Cover Image. Rural roundabout. Source: Washington State Department of Transportation/Flickr.
4 Safe System Strategic Plan

Technical Report Documentation Page (Form DOT F 1700.7)

Technical Report 

Documentation Page 

1. Report No.

FHWA-SA-21-088 

2. Government Accession No. 3. Recipient's Catalog No.

4. Title and Subtitle

Safe System Strategic Plan

5. Report Date

6. Performing Organization Code

7. Author(s)*

Sarah Abel, Jeff Lindley, and Jeff Paniati

8. Performing Organization Report 

No.

9. Performing Organization Name and Address

Institute of Transportation Engineers 

1617 Eye Street NW, Suite 600

Washington, DC 20006

10. Work Unit No. (TRAIS)

11. Contract or Grant No.

DTFH6116D00055L 

12. Sponsoring Agency Name and Address

Federal Highway Administration

1200 New Jersey Avenue SE 

Washington, DC 20590

13. Type of Report and Period 

Covered

14. Sponsoring Agency Code

15. Supplementary Notes:

FHWA Contracting Officer’s Task Order Manager: Norah Ocel; ITE Project Manager: Sarah Abel. 

16. Abstract

The Safe System Strategic Plan provides a roadmap for the advancement of the Safe System Approach in the U.S. 

It describes the Safe System Approach, discusses the process involved in building the plan, outlines how to 

advance a Safe System mindset, and describes steps necessary to implement Safe System practices within the 

transportation community in the U.S. This plan focuses on the role of road system owners and operators in 

applying the Safe System Approach to design, build, and operate safer roads. This plan aims to educate 

transportation professionals on the effectiveness of the Safe System Approach while also offering guidance on 

how to prioritize safety in the U.S. as a means to achieving zero traffic fatalities.

This plan was developed by the Road to Zero Coalition and funded by FHWA. 

17. Key Words

Safe System Approach, Prioritizing Safety, Safety 

Culture 

18. Distribution Statement

19. Security Classif. (of this report)

Unclassified

20. Security Classif. (of this page)

Unclassified

21. No. of Pages 22. Price

Form DOT F 1700.7 (8-72) Reproduction of completed page authorized
5 Safe System Strategic Plan

Table of Contents

Background ........................................................................................................................................... 6 

Introduction to the Strategic Plan......................................................................................................... 8 

Immediate One-Year Actions that Raise Awareness and Build Support for the Safe System 

Approach ............................................................................................................................................. 16 

Near-Term and Long-Term Actions................................................................................................... 24 

Conclusion ........................................................................................................................................... 25 

Appendix A – RTZ Coalition Safe System Working Group .............................................................. 27 

Appendix B – Summary of 2019 Safe System Practitioners Survey .................................................. 28 
6 Safe System Strategic Plan

Background

In 2016, the Road to Zero (RTZ) Coalition was formed to bring together and build a broad coalition of 

stakeholders working toward a goal of zero fatalities from motor vehicle crashes. The objective was to unify 

efforts that were being advanced under initiatives such as “Toward Zero Deaths” and “Vision Zero.” In

2018, the RAND Corporation prepared a report for the Road to Zero Coalition titled The Road to Zero: A 

Vision for Achieving Zero Roadway Deaths by 2050. This report articulated a three-prong strategy to reach 

the goal of zero fatalities from motor vehicle crashes by the year 2050. The three prongs are: Double Down 

on What Works, Accelerate Advanced Technology, and Prioritize Safety. The Prioritize Safety strategy 

focuses on methods to facilitate change by “...creating a Safety Culture and adopting a Safe System 

approach.”1 The report further references the vital importance of the Safe System Approach as follows: 

“...a Safe System approach assumes that people will occasionally, but inevitably, make mistakes 

behind the wheel and that the overall transportation system should be designed to be forgiving so 

that these mistakes do not lead to fatal outcomes.”

From the publication of the RTZ Coalition Report, managed by the National Safety Council (NSC), formed 

three groups to focus on the three prongs in the overall strategy. The Institute of Transportation Engineers 

(ITE) assumed a leadership role for the Prioritizing Safety effort and a Steering Committee of 

representatives from national organizations involved in the RTZ Coalition. Beneath the Steering 

Committee, two working groups were formed to evaluate the state of knowledge and practice regarding a 

positive Safety Culture and the Safe System Approach. 

Through multiple forums for collaboration, the working groups defined the immediate, near-term, and longterm actions necessary to promote adoption and use of the Safe System Approach and development of a 

strong Safety Culture in the U.S. 

In October 2019, the Safe System Working Group (members listed in Appendix A) conducted an initial 

survey of practitioners from both the Road to Zero Coalition and ITE public agency and safety members to 

assess understanding of the Safe System Approach among RTZ Coalition members and transportation 

professionals. A full summary of the responses to this survey is provided in Appendix B. Of 160 responses

received, forty-one percent (41%) of respondents were very familiar with the concept of the Safe System

Approach; however, a much smaller percentage regularly practiced Safe System principles. 

1 The RTZ Coalition Report refers to a Safe System approach instead of the Safe System Approach.

Prioritizing Safety Steering Committee

Safe System Working Group Safety Culture Working Group

Figure 1. Structure of the Road to Zero Coalition Prioritizing Safety Steering Committee with Safe System 

and Safety Culture Working Groups. 
7 Safe System Strategic Plan

The Safe System Working Group also conducted an initial literature review in late 2019 that led to release

of a Safe System Technical Resource Page. This resource page provides resources that provide initial 

guidance for implementing the Safe System Approach in the U.S. Many of the resources are international 

documents that have guided success towards reducing serious injury and fatalities on roads in other 

countries. The initial resources were also used to support the development of the Safe System Explanation

and Safe System Framework. While FHWA representatives served as members of the Working Group and 

the resource page includes links to FHWA resources, the resource page itself does not represent FHWA 

guidance.

Figure 2. Safe System Principles presented in FHWA The Safe System Approach Brochure. Source: FHWA.
8 Safe System Strategic Plan

Introduction to the Strategic Plan

The purpose of this strategic plan is to create a roadmap for the strategies, focus areas, measures of 

success, and specific actions that will facilitate adoption of the Safe System Approach by infrastructure 

owners and operators in the U.S. A principle of the Safe System Approach is that responsibility is shared; 

and thus, any strategies laid out in this plan will need to be coordinated with numerous partners in a 

collaborative approach to achieve a goal of zero roadway fatalities in the U.S. The purpose of this plan is 

to educate decision makers, influencers, and practitioners about Safe System techniques, and how the 

roadway system can be better planned, designed, and operated. This approach is structured around the 

idea of changing mindset, scale, and practice. 

Special note: Although this plan focuses on infrastructure 

owners and operators, there is great applicability for all 

safety professionals to use the plan as a guide for 

institutionalizing the Safe System Approach. Building on 

the awareness and implementation of safety culture and 

the Approach requires the attention of the four E’s of the 

safety (Engineering, Education, Enforcement, and EMS). 

⋅ Changing Mindset is focused on awareness 

building of Safety Culture and the Safe System

Approach, and how they link to the goal of zero 

fatalities. It also seeks to create buy-in to the Safe 

System principles that humans make mistakes and

human bodies are fragile. Early efforts, such as the 

Safe System Explanation and Introduction to Safe 

System webinar, provide resources for practitioners

to gain basic understanding of Safe System 

concepts. Throughout this plan, there is continued 

emphasis on potential strategies and actions that 

build from early efforts to create a broader 

awareness within the road safety community about 

the importance of Prioritizing Safety, specifically 

the Safe System Approach. 

⋅ Changing Scale is aimed at building the 

understanding that achieving a goal of zero 

fatalities and serious injuries must be at a system 

scale. The Safe System Approach is more than

individual actions; it is a coordinated set of 

strategies carried out by the many players 

responsible for delivering safe transportation

systems. This starts by embracing the five elements 

in the Safe System Wheel working together to 

create a mutually reinforcing safety net. These 

elements were adapted to a U.S. context from 

similar approaches used by countries leading in 

transportation safety around the world. Achieving 

Figure 3. Safe System Wheels showing five 

elements of a holistic approach to reducing 

fatalities, one focused on Safety Culture 

surrounding the Safe System Approach and 

the other highlighting Safe System principles 

that affect Safe System elements. 

Source: ITE/FHWA. 
9 Safe System Strategic Plan

this safety net includes embracing Safety Culture within organizations and communities, and moves 

to adopting systems thinking, programs, and practices by those responsible for the different 

elements and principles of the Safe System Approach. While this plan predominately focuses on

the safe roads, safe road users, and safe speed elements, it also outlines the need to involve

practitioners and partnerships in the safe vehicles and post-crash care elements to fully achieve the 

Safe System Approach. This all takes into consideration the Safe System principles that 

responsibility is shared, and redundancy is crucial to prevent death and serious injury. 

⋅ Changing Practice is about providing transportation professionals responsible for the planning, 

design, operation, and other aspects of the road system with tools to make decisions based on the 

Safe System Approach. The Safe System Framework provides a starting point for changing practice

and structure that can be used to reduce the 36,000 deaths annually Throughout this plan, 

foundational documents in the planning, design, and operation of transportation infrastructure have 

been identified as opportunities for changing practice toward the Safe System Approach. A key 

goal throughout this plan involves showcasing implementation of the Safe System framework, 

elements, and principles in roadway projects moving forward. Use of FHWA Proven Safety 

Countermeasures using the Safe System Approach is another application of changing practice; 

prioritizing research on new Safe System techniques is also important. 

This plan focuses on immediate (one year), near-term (two to five years), and long-term (greater than five

years) timelines for actions toward advancing the Safe System Approach in the U.S. with clear measures 

of success for the transportation profession. The timelines are benchmarks for raising awareness and 

building support in one year, developing and disseminating resources and tools in two to five years, and 

institutionalizing practices of Prioritizing Safety using the Safe System Approach and creating a Safety 

Culture beyond five years. The plan should be carried forward through the broad support of the RTZ

Coalition. However, achievement of the goals outlined in this plan require the broader support of the entire 

safety community and transportation profession.

The Safe System Working Group and Safety Culture Working Group developed an extensive Prioritizing 

Safety Roadmap, which is shown on the next page. The timelines, focuses, and measures of success are 

consistent between the Safe System Approach and creating a positive Safety Culture. The strategies and 

outcomes informed the actions and guidance to build, develop, and institutionalize the Safe System 

Approach as a means to achieving zero roadway deaths. The following strategies and outcomes were 

developed to ground this plan:

Strategies Outcomes

Solidify the vision and build consensus on 

Prioritizing Safety in U.S.

Consensus on Prioritizing Safety in U.S.

Create pathways for successful adoption Policies and processes in place to support 

widespread deployment

Support implementation at community, corridor, 

and project levels

Examples of successful implementation widely 

available 

The identified actions in this plan can be further explored, developed, and in some cases, implemented by 

a wide variety of stakeholders. The actions in this plan incorporate the elements and principles outlined in 

the following FHWA publications on the FHWA Zero Deaths and Safe System webpage: The Safe System 

Approach Brochure, The Safe System Approach Presentation, Integrating the Safe System Approach with 

the Highway Safety Improvement Program Informational Report, and additional forthcoming Safe System 

resources from FHWA. The RTZ Coalition Prioritizing Safety Roadmap is articulated in the following 

immediate, near-term, and long-term action tables: 
10 Safe System Strategic Plan

Table 1. Road to Zero Coalition Prioritizing Safety Roadmap for Advancing 

Safety Culture and the Safe System Approach Immediate Actions. 

*Actions in italic text with a checkbox icon in Roadmap are considered immediate Safe System actions

that are detailed in this Strategic Plan.

Timeline Immediate

Up to one-year 

Focus Awareness-raising and building support

Measures of 

Success

1. Organizations and users introduced to Safety Culture and the

Safe System Approach concepts

2. Existing Safety Culture and the Safe System Approach

practices identified

3. Key stakeholders onboard

Strategies Immediate Actions* Outcomes

Solidify the 

vision and 

build 

consensus on 

Prioritizing 

Safety in U.S.

⋅ Develop Safety Culture principles to support broad engagement 

and usability of the term Traffic Safety Culture 

Consensus on 

Prioritizing 

Safety in U.S. ⋅ Convene Safety Culture partners to formalize a mutually 

understood framework

⧠ Develop talking points and promote concepts of the Safe 

System Approach and Safety Culture through a variety of 

media

⋅ Develop Safety Culture web pages and resources

⧠ Enhance and refine Safe System Resource Page, Explanation, 

and Framework

⧠ Identify and engage influencers and leading professional 

organizations on the Safe System Approach and Safety Culture

⧠ Share Safety Culture and Safe System concepts with leading 

jurisdictions actively working toward zero transportation 

fatalities

⧠ Connect Prioritizing Safety and transportation equity

Create 

pathways for 

successful 

adoption

⧠ Identify key elements of a Prioritizing Safety program Policies and 

processes in 

place to 

support 

widespread 

deployment

⧠ Highlight need for a data-driven approach

⧠ Identify opportunities for implementing Prioritizing Safety

⋅ Develop a Safety Culture self-assessment tool

⋅ Conduct Safety Culture self-assessments that are reviewed and 

approved by outside experts

⧠ Develop urban core (area-wide) Prioritizing Safety approach 
11 Safe System Strategic Plan

⧠ Develop suburban arterial (corridor) Prioritizing Safety 

approach 

⧠ Develop a rural roads Prioritizing Safety approach 

Support 

implementation 

at community, 

corridor, and 

project levels

⋅ Develop a template for Safety Culture core elements Examples of 

successful 

implementation 

widely 

available 

⧠ Encourage coordination and information sharing on Safety 

Culture and Safe System efforts at all jurisdictional levels

⧠ Identify and document examples where safety expectations have 

changed 

⧠ Solicit and compile U.S.-based examples of projects 

successfully applying the Safe System Approach

⧠ Assemble data on safety benefits (and co-benefits) of Safe 

System applications

⧠ Showcase value of temporary, quick-build, and low-cost 

projects to test safety improvements and new approaches

⧠ Identify techniques applicable to certain land uses
12 Safe System Strategic Plan

Table 2. Road to Zero Coalition Prioritizing Safety Roadmap for Advancing 

Safety Culture and the Safe System Approach Near-Term Actions. 

**Actions in italic text with a triangle icon in Roadmap are considered Safe System actions that could be 

explored as this Strategic Plan advances. 

Timeline Near-Term

Two to five years

Focus Developing and disseminating resources and tools

Measures of 

Success

1. Implementers understand and begin to practice Safety Culture and the

Safe System Approach

2. Tools and resources widely available

3. Prioritizing Safety success stories being shared

Strategies Near-Term Actions** Outcomes

Solidify the 

vision and 

build 

consensus on 

Prioritizing 

Safety in U.S.

∆ Encourage jurisdictions committed to a goal of zero fatalities to 

incorporate a Prioritizing Safety approach 

Consensus on 

Prioritizing 

Safety in U.S. ⋅ Provide Safety Culture case studies for inclusion in Strategic 

Highway Safety Plans

∆ Encourage adoption of Safety Culture and Safe System Frameworks

∆ Encourage cross-jurisdiction (State-regional-local) collaboration

∆ Highlight success stories

Create 

pathways for 

successful 

adoption

∆ Develop a Prioritizing Safety program guide Policies and 

processes in 

place to 

support 

widespread 

deployment

∆ Identify model Prioritizing Safety policies

∆ Demonstrate data analysis techniques

⋅ Demonstrate and evaluate Safety Culture measurement tools

∆ Identify opportunities to integrate Prioritizing Safety into existing 

guidance, policies, and standards

⋅ Share Safety Culture narratives from exemplary studies with partners

∆ Integrate Safety Culture and the Safe System Approach in Strategic 

Highway Safety Plans

∆ Convene trainings to assist agencies in implementation of the Safe 

System Approach and Safety Culture

∆ Pilot, test, and evaluate urban core (intersection level, pedestrian, 

and bicycle users) Prioritizing Safety approach

∆ Pilot, test, and evaluate suburban arterial Prioritizing Safety 

approach 

∆ Pilot, test, and evaluate rural roads Prioritizing Safety approach
13 Safe System Strategic Plan

Support 

implementation 

at community, 

corridor, and 

project levels

∆ Develop cases studies at community, corridor, and project levels Examples of 

successful 

implementation 

widely 

available 

∆ Equip stakeholders with data and resources

∆ Establish consistent means of providing compelling performancerelated feedback

∆ Develop a Safe System toolbox, including approaches for faster crash 

risk identification and for identifying appropriate improvements 

based on area/corridor/road segment and speed

∆ Develop quick-build toolkit for Safe System applications

∆ Showcase leverage-based Prioritizing Safety techniques 

∆ Conduct before and after evaluations of improvements
14 Safe System Strategic Plan

Table 3. Road to Zero Coalition Prioritizing Safety Roadmap for Advancing 

Safety Culture and the Safe System Approach Long-Term Actions.

***Actions in italic text with a triangle icon in Roadmap are considered Safe System actions that could 

be explored as this Strategic Plan advances. 

Timeline Long-Term

Greater than five years

Focus Institutionalizing practices

Measures of 

Success

1. Safety Culture and the Safe System Approach being widely applied

2. Safety Culture and the Safe System Approach integrated into practice

practice practtcepracticwe practice

3. Improvements in safety linked to Safety Culture and the Safe System

Strategies Long-Term Actions*** Outcomes

Solidify the 

vision and 

build 

consensus on 

Prioritizing 

Safety in U.S.

∆ Institutionalize Prioritizing Safety concepts as part of safety practice 

in U.S.

Consensus on 

Prioritizing 

Safety in U.S. ∆ Implement sustainable frameworks that support increased awareness 

of Safety Culture and the Safe System Approach

⋅ Require safety plans to include effective Safety Culture strategies

⋅ Stakeholders required to report indicators of Safety Culture as part of 

performance management requirements 

Create 

pathways for 

successful 

adoption

∆ Develop and advance Prioritizing Safety programs and policies Policies and 

processes in 

place to 

support 

widespread 

deployment

∆ Update existing guidance, polices, and standards to integrate a 

Prioritizing Safety approach

⋅ Conduct routine Safety Culture assessments with developed tool

∆ Showcase model urban, suburban, and rural implementations

∆ Formalize communication and sharing of resources across multisector partners

Support 

implementation

at community, 

corridor, and 

project levels

∆ Provide Safe System implementation resources for use in a wide 

variety of settings

Examples of 

successful 

implementation 

widely 

available 

∆ Embed evidence-based traffic safety practices at all jurisdictional 

levels and with all stakeholders

Approach
15 Safe System Strategic Plan

Format of Strategic Plan 

The following key outlines headers in the subsequent sections of the Safe System Strategic Plan and are 

based on the Prioritizing Safety Roadmap: 

Strategic goals are shown in bold underline text with a check mark icon. 

Actions are shown in italic text with a checkbox icon. 

Callout boxes with italic bold text are some potential FHWA Proven Safety Countermeasures

that could be implemented using the Safe System Approach. 

Images throughout represent visual examples of applying the Safe System Approach on projects 

in the U.S. 

Figure 4. Redundancy is key—such as high-visibility crosswalks and bumpouts—in a Safe System application 

to prevent crashes. Source: Mariah Hewines/Unsplash.
16 Safe System Strategic Plan

Immediate One-Year Actions that Raise Awareness and Build 

Support for the Safe System Approach

This section describes immediate actions that can be taken to raise awareness and build support for the Safe 

System Approach. Each item includes a description and a brief list of relevant resources identified in the 

literature review. 

Measures of Success

⋅ Organizations/users introduced to the Safe System Approach and Safety Culture concepts

⋅ Existing Safe System Approach and Safety Culture practices identified

⋅ Key stakeholders are on board 

 Solidify the Vision and Build Consensus on Prioritizing Safety in U.S.

⧠ Develop Talking Points and Promote Concepts of the Safe System Approach and Safety 

Culture through a Variety of Media

This action could be accomplished via webinars, conferences, articles, and fact sheets. This action 

could build on work underway, including a Safe System resource page, Safe System and Safety 

Culture introduction webinars, Safe System articles and presentations at conferences already 

released or planned. With the Prioritizing Safety Steering Committee planting the seed, this action 

could develop boilerplate talking points, brochures, social media campaigns, and a presentation 

that members of the RTZ Coalition and other organizations could use to carry and spread the 

Prioritizing Safety message. This material could make it easier to build a consistent understanding 

and could be used at trainings, conferences, and via membership outreach to raise awareness and 

build support beyond those currently involved with Safe System efforts. Promotional material

content should stress that without a positive safety culture, the Safe System Approach cannot be 

feasibly implemented. This action could include a discussion forum and should utilize the RTZ

Coalition structure to build support.

Existing Resources, Guidance, and Tools: Safe System Explanation, Safe System 

Framework, FHWA Safe System Approach Brochure, Traffic Safety Culture pooled fund 

study, FHWA Safe System presentation, and the FHWA Integrating the Safe System 

Approach with the Highway Safety Improvement Program Report. 

⧠ Enhance and Refine Safe System Resource Page, Explanation, and Framework

The initial versions of the Safe System resource page, Explanation, and Framework serve as an 

initial foundation for the Safe System Approach in the U.S. Revisions to existing resources will be 

necessary and additional resources will need to be developed as the Safe System Approach is more 

widely applied; this action may focus on ensuring the available resources are added and/or adjusted 

as the use of the Safe System Approach advances. The focus of these new and updated resources

may include new information and guidance drawn from more system-wide use of the Safe System 

Approach. 

Existing Resources, Guidance, and Tools: Safe System Resource Page, Safe System 

Explanation, Safe System Framework, FHWA Safe System presentation, and the FHWA 

Integrating the Safe System Approach with the Highway Safety Improvement Program

Report, and FHWA Zero Deaths and Safe System webpage. 
17 Safe System Strategic Plan

⧠ Identify and Engage Influencers and Leading Professional Organizations on the Safe 

System Approach and Safety Culture

This action may focus on continuing to build RTZ Coalition support for the Safe System Approach

and building a Safety Culture. Identifying and engaging influencers and organizations that have 

influence in transportation practice and getting the message to their members/stakeholders may be 

an important step. This action will dovetail with developing talking points and promotion actions 

noted above, as well as engagement through key organizations and committees as well as individual 

discussions with influencers. This should continue to build on resources and lessons learned on an 

international level that could be applied successfully in the U.S. and continue to look at 

organizations creating foundational documents on the Safe System Approach and practices. 

Existing Resources, Guidance, and Tools: World Road Association (PIARC) Road Safety 

Manual and Towards Zero Foundation The Safe System webpage. 

⧠ Share Safety Culture and Safe System Concepts with Leading Jurisdictions Actively 

Working Toward Zero Transportation Fatalities

One way of building understanding for the Safe System Approach is to start with jurisdictions that 

have already invested in reducing fatalities through adoption of Vision Zero or Toward Zero Deaths 

initiatives. This action may include sharing information and working with leading programs to 

include the Safe System Approach to reduce serious injuries and fatalities. Through pilot projects, 

this action could explore implementing and advancing the Safe System framework as part of a 

Vision Zero program and measure success and reduction of serious injuries and fatalities in 

jurisdictions from anticipating human error and accommodating human injury tolerances. This 

action may lead to an update to the existing Vision Zero Core Elements and TZD Framework by 

adding an element that includes an expanded emphasis on the Safe System Approach. 

Existing Resources, Guidance, and Tools: RTZ Prioritizing Safety resources, Vision Zero 

Core Elements, TZD Framework, NHTSA Integrated Vehicle-Based Safety Systems 

(IVBSS), and FHWA Safe System products. 

⧠ Connect Prioritizing Safety and Transportation Equity

Making a connection between equity and safety in crash data and where resources are focused is a 

key focus of raising awareness and reducing serious injuries and fatalities on U.S. roads. Equity in 

transportation is an emerging focus nationally, and in some jurisdictions within Vision Zero 

programs, but more can be done to understand and reduce crashes that result in fatalities and serious 

injuries because of transportation inequities. Crashes impact all segments of American society but 

not always equally. People of color are more likely to be killed in traffic crashes.

2

 Low-income 

Americans and people of color are overrepresented in crashes involving pedestrians, often because 

the infrastructure provided in their communities to support safe walking is lacking.

3 This effort will

encourage more data on ethnicity, income, and neighborhood type for serious injury and fatal 

crashes. It may also involve developing material that clearly documents the connections between 

transportation and equity that can be used to educate both decision makers and professional staff 

on these connections and the need to ensure that investments in improving transportation safety are 

made in an equitable manner. 

2 https://www.governing.com/topics/public-justice-safety/gov-pedestrian-deaths-analysis.html 3 https://scholarscompass.vcu.edu/cgi/viewcontent.cgi?article=3983&context=etd
18 Safe System Strategic Plan

Existing Resources, Guidance, and Tools: Vision Zero Core Elements, NHTSA Traffic 

Safety Facts on Race and Ethnicity, NHTSA Fatality Analysis Reporting System (FARS) 

Data, Center for Disease Control and Prevention National Center for Injury Prevention 

and Control, NSC Journal of Safety Research, and RTZ Connecting Prioritizing Safety with 

Transportation Equity webinar. 

 Create Pathways for Successful Adoption

⧠ Identify Key Elements of a Prioritizing Safety Program

It is important to identify key elements and principles of Prioritizing Safety that can be incorporated 

in existing safety plans and programs, such as Strategic Highway Safety Plans (SHSP) and 

Highway Safety Improvement Programs (HSIP), with a goal of achieving zero fatalities and serious 

injuries by incorporating a positive Safety Culture and using the Safe System Approach. This action 

will take the initial work done by the RTZ Coalition, PIARC Road Safety Manual, and ongoing 

work from FHWA around the Safe System Approach to build a more comprehensive approach

through State and local plans and programs. 

Existing Resources, Guidance, and Tools: Safe System Framework, FHWA The Safe 

System Approach Brochure, Highway Safety Manual, AASHTO Policy on Geometric 

Design of Highways and Streets “Green Book,” PIARC Road Safety Manual, HSIP, 

NHTSA Traffic Safety Facts, and relevant FHWA Office of Safety products. 

Figure 5. The Safe System Approach requires a shared responsibility to proactively identify and address risks 

to protect all road users. Source: Javier de la Maza/Unsplash.
19 Safe System Strategic Plan

⧠ Highlight Need for a Data-Driven Approach

Safety data is critical to implementing the Safe System Approach and contributes to understanding 

how to reduce serious injuries and fatalities. A data-driven approach may help practitioners 

understand the Safe System framework, principles, practices, and elements that are effective in 

achieving the goal of zero fatalities and serious injuries. 

This action could develop a data set and template for 

jurisdictions to use to monitor trends, focus 

areas/locations, and effectiveness of implementing the 

Safe System Approach. 

Existing Resources, Guidance, and Tools: Safe 

System Framework, FHWA Safe System 

Approach Brochure, NHTSA FARS, DataDriven Safety Analysis (DDSA), and FHWA 

Every Day Counts (EDC). 

⧠ Identify Opportunities for Implementing 

Prioritizing Safety

To complement the above action of identifying key elements of prioritizing a safety program, this 

action may identify opportunities to incorporate the Safety Culture and Safe System concepts into 

the tools currently used by practitioners. The two actions combined will help guide efforts to 

advance these practices in the U.S. at national, State, regional and local levels. Understanding how

Safety Culture and the Safe System Approach can be integrated with traditional safety tools and 

resources may be critical to advance acceptance and adoption. A strengths, weaknesses, 

opportunities, and threats (SWOT) analysis may be a simple approach to evaluating opportunities 

to prioritize safety through implementing the Safe System Approach and creating positive Safety 

Culture. This plan may inform the appropriate sequencing of actions to advance the Safe System 

Approach in the U.S.

Existing Resources, Guidance, and Tools: Highway Safety Manual, AASHTO Policy on 

Geometric Design of Highways and Streets (Green Book), Highway Safety Improvement 

Programs (HSIP), MUTCD, and NHTSA Traffic Safety Facts. 

⧠ Develop Urban Core (Area-Wide) Prioritizing Safety Approach 

This action will be to develop an approach or guide for using the Safe System Approach in an urban 

core or high-density area at an area-wide scale. This may include downtown areas in highly 

populated cities. This action may focus on protection of vulnerable road users in urban areas and

may include case studies at an urban core and area-wide scale showing the application of the Safe 

System framework. There is a strong interest to begin understanding how to apply the Safe System 

Approach starting with the urban core. 

Existing Resources, Guidance, and Tools: Highway Safety Manual, AASHTO Green Book, 

FHWA Proven Safety Countermeasures, MUTCD, HSIP, Data-Driven Safety Analysis 

(DDSA), Vision Zero Core Elements, NACTO Urban Street Design Guide and Don’t Give 

Up at the Intersection. 

⧠ Develop Suburban Arterial (Corridor) Prioritizing Safety Approach 

This action will develop an approach or guide for using the Safe System Approach on a suburban 

arterial at a corridor level. Recognizing that suburban arterials are a road type with high crash rates, 

Data-Driven Safety 

Analysis

Data-Driven Safety Analysis 

exemplifies the Safe System 

principle of being proactive by 

implementing countermeasures 

where crashes are more likely to 

occur in the future based upon 

identified risk factors.
20 Safe System Strategic Plan

this action may provide guidance on how to apply the 

Safe System Approach to reduce fatalities on arterial 

road classifications. This may include known corridors 

with suburban arterials that have effectively reduced 

their fatal crashes. This action may use the Safe System 

framework as a basis for the Safe System Approach on 

a suburban arterial corridor. 

Existing Resources, Guidance, and Tools: Safe 

System Framework, FHWA Safe System 

Approach Brochure, Highway Safety Manual, 

AASHTO Green Book, Proven Safety 

Countermeasures, MUTCD, HSIP, and DDSA.

⧠ Develop a Rural Roads Prioritizing Safety Approach 

This action will develop an approach or guide for using the Safe System Approach on rural roads. 

This guide may focus on speed management on rural roads and understanding crash causation 

factors and roadside environment of single vehicle crashes. This may include templates for 

common crashes and solutions for rural roadways. 

Existing Resources, Guidance, and Tools: Highway Safety Manual, AASHTO Green Book,

FHWA Proven Safety Countermeasures, MUTCD, HSIP, DDSA, and Speed Management 

Toolbox for Rural Communities. 

 Support Implementation at Community, Corridor, and Project Levels

⧠ Encourage Coordination and Information Sharing on Safety Culture and Safe System

Efforts at all Jurisdictional Levels

This action will build upon learned practices, networking, and learning from promotion and 

engagement to continue to grow knowledge and support for the Safe System Approach. This action 

should utilize the RTZ Coalition and benefits of a coalition structure to learn of successful projects 

and approaches to the Safe System Approach in the U.S. This action will ensure examples of 

successful implementation are widely available. 

Existing Resources, Guidance, and Tools: To be developed. 

⧠ Identify and Document Examples where Safety Expectations Have Changed 

This action could be accomplished via an annual survey to learn if safety practices are changing. 

This could be done as a follow up to the initial practitioner’s survey already conducted and could 

be managed through the RTZ Coalition. Alternatively, polls could be conducted during meetings, 

webinars, etc., to gauge change in mindset and practice in the profession. The results could be

featured in a RTZ Coalition member profile or meeting focused on safety expectations and how 

they have changed for the better. This could also include more reporting or connection to safety 

data trends from the NHTSA Fatal Accident Reporting Systems (FARS). 

Existing Resources, Guidance, and Tools: To be developed. 

Leading Pedestrian 

Intervals

This proven safety 

countermeasure is an example of 

separating vulnerable road users 

in time by giving pedestrians 

opportunity to enter a signalized 

intersection crosswalk three to 

seven seconds before vehicles are 

given a green indication.
21 Safe System Strategic Plan

⧠ Solicit and Compile U.S.-Based Examples of Projects Successfully Applying the Safe 

System Approach

A strategy to raise awareness and build support for the Safe System Approach in the U.S. is to show 

successful projects that applied the Safe System Approach. Criteria for what is deemed to be a 

successful Safe System project should be developed. The Safe System methodology developed in

Australia may be useful in creating selection criteria for Safe System projects in the U.S. This 

action could result in a Safe System project database with key information on how and where 

noteworthy Safe System projects exist in the U.S. This Safe System project database could be 

compiled in the short term and continually updated as more Safe System projects are successfully 

implemented. The initial projects highlighted in the short term may only implement portions of the 

Safe System Approach (such as the Carmel, Indiana, U.S. roundabout case study featured on the 

next page in Figure 6) and may be replaced with more systemic or comprehensive projects in the 

near- to long-term. This action involves the following three phases: 1) solicitation of case studies, 

2) synthesis and analysis of case studies using the Safe System framework, elements, and 

principles, and 3) publication of completed case studies. This Safe System project database could 

be updated annually or more frequently to show increased practices of the Safe System Approach. 

This action is a high priority and will inform a multitude of actions later in the near-term timeline. 

Existing Resources, Guidance, and Tools: To be developed.

⧠ Assemble Data on Safety Benefits (and Co-Benefits) of Safe System Applications 

This action will create statistics and national data on the Safe System Approach’s effect on 

transportation safety. The data collection could be a research study, include FARS data, and involve 

a survey of transportation professionals. This action could pull statistics from case studies in the 

Figure 6. A protected intersection can be a Safe System application, especially in urban cores, by separating 

users in space and time. This intersection is located in Chicago, Illinois, U.S. Source: Sarah Abel/ITE.
22 Safe System Strategic Plan

preceding action to show the effect and impact of the Safe System Approach in achieving Vision 

Zero; this was identified as a top priority in this Strategic Plan. 

Existing Resources, Guidance, and Tools: Limited information currently available.

Implementation of Roundabouts Using the Safe System Approach in 

Carmel, Indiana, U.S. 

Since 1997, Carmel, Indiana, U.S. has taken the Safe System Approach to intersection design by installing 

roundabouts at intersections wherever possible. The city of Carmel took a systemic approach by converting 

over 125 intersections to roundabouts to improve safety citywide, regardless of crash history. Roundabouts 

move people through intersections more efficiently and more safely than stop signs or signalized 

intersections. With roundabouts now at so many of the city’s intersections, Carmel has seen serious injury 

crashes reduced by about 80 percent, and the number of crashes were reduced by about 40 percent. The 

Mayor of Carmel instituted the comprehensive roundabout program to prioritize safety after learning from 

European transportation professionals that roundabouts eliminate right angle and head on crashes and 

reduce pedestrian conflict crashes. In addition, roundabouts slow the speed of vehicles maneuvering 

through an intersection, thus reducing the kinetic forces and crash severity if a crash occurs. In making 

these changes, designers addressed the Safe System elements of Safe Road Users, Safe Speeds, and Safe 

Roads. 

The city of Carmel maintains a website about the comprehensive roundabouts program, where additional 

information is available: https://www.carmel.in.gov/department-services/engineering/roundabouts. 

Figure 7. Images of a completed roundabout in downtown Carmel, Indiana, U.S. Source: City of Carmel. 

⧠ Showcase Value of Temporary, Quick-Build, and Low-Cost Projects to Test Safety 

Improvements and New Approaches 

Temporary or quick-build projects may allow for exploration of the Safe System Approach at 

relatively low cost and measure the level of safety improvement and crash reduction. Using this

project delivery method may allow professionals to learn how to apply the Safe System Approach

Safe Road Users

Safe Speeds

Safe Roads
23 Safe System Strategic Plan

effectively, easily adjust a project based on data, and understand crash causation and effectiveness 

of the countermeasure or road design change. Using quick-build projects may also raise awareness 

within communities of the effectiveness of the Safe System Approach to improve safety. This 

action could include pilot demonstrations or quick-build installations using the Safe System 

Approach and require data collection and lessons learned through each project.

Existing Resources, Guidance, and Tools: Highway Safety Manual, AASHTO Green Book, 

FHWA Proven Safety Countermeasures, HSIP, NACTO Urban Street Design Guide and 

Don’t Give Up the Intersection.

⧠ Identify Techniques Applicable to Certain Land Uses 

This action could be coupled with urban, suburban, and rural guides to identify key land uses where 

there could be strong support for efforts focused on eliminating fatalities and where the Safe System 

Approach could effectively be applied to improve safety, such as schools, hospitals, and mixed 

uses. From land uses that have a high crash risk to an area with a speed transition zone, a guide or 

series of technical briefs could be released around these key land uses where the Safe System 

Approach is important to improving or maintaining safety.

Existing Resources, Guidance, and Tools: Highway Safety Manual, AASHTO Green Book, 

Proven Safety Countermeasures, MUTCD, and HSIP.

Figure 8. The Safe System Approach aims to eliminate fatal and serious injury crashes for all road users. 

Source: Greg Griffin, AICP/PBIC.
24 Safe System Strategic Plan

Near-Term and Long-Term Actions

The near-term and long-term actions are the future Safe System activities identified in the Prioritizing 

Safety Roadmap outlined in the Background section. As the U.S. moves forward in advancing the Safe 

System Approach, stakeholders will monitor progress. Revisiting the foundations of the Safe System 

Approach, including the elements, principles, and framework, should inform adjustments and details to 

moving the near-term actions identified in the Prioritizing Safety Roadmap forward. As the profession

moves through the timeline and achieves the measures of success through completed actions, the near-term 

actions will be informed by the completed immediate actions.

When it is time to move toward the long-term goals, the profession should look back at the immediate and 

near-term action to re-evaluate the clearest path and set of actions toward institutionalizing the Safe System 

Approach. How the prior actions in this strategic plan have moved the needle on achieving a goal of zero 

traffic fatalities should be considered. As the near-term measures of success are achieved, the long-term 

actions can progress.
25 Safe System Strategic Plan

Conclusion

Internationally, Safe System practices serve as the underpinning of Vision Zero programs and successes. 

They represent an understanding of the importance of taking a comprehensive system approach to reducing 

fatalities with mutually reinforcing practices and actions being taken by the wide-range of players involved 

in roadway safety. They also provide infrastructure owners and operators with the tools needed to support 

safe roads and safe speeds in the planning, design, and operation of the roadway system. 

In the U.S., the awareness, knowledge, and practice of the Safe System Approach is in the early stages. 

While many infrastructure owners and operators implement some of the actions that could constitute Safe 

System programs or practices, they are not embraced on a system basis. More effort must be devoted to 

engaging communities, identifying successful practices, educating practitioners, developing resources,

implementing evidence-based solutions, and evaluating the effectiveness of these efforts. 

This Strategic Plan presents the following three key strategies: 1) solidifying the vision, 2) creating 

pathways for adoption, and 3) supporting implementation. For each strategy, immediate, near-term, and 

long-term actions have been developed that can help make safety a priority, support development of the 

necessary policies and processes, and provide examples of successful implementation. 

Leadership at all levels of government, as well as partnerships among stakeholders, will be critical to

achieving zero fatalities and serious injuries on our roadways. This Strategic Plan provides a guide to the 

steps necessary to build Safe System practices in the U.S. with a particular emphasis on the role of 

infrastructure owners and operators.

The logical next steps are to begin implementing the immediate one-year actions amongst members of the 

RTZ Coalition. Funding and member involvement may determine which one-year actions and what level 

of implementation may move towards applying the Safe System Approach. The RTZ Prioritizing Safety 

efforts have recently shifted to early implementation of the most pressing goals from this Strategic Plan. 

Three working groups have been formed to focus on advancing implementation of Safe System examples 

and benefits, connecting Prioritizing Safety with transportation equity, and elevating safety as a priority. 

Figure 9. Center and edge line rumble strips on rural roads can be an effective Safe System application to 

reduce rural road departure fatal crashes. Source: Jesse Collins/Unsplash.
26 Safe System Strategic Plan
27 Safe System Strategic Plan

Appendix A – RTZ Coalition Safe System Working Group

The following organizations were represented on the Safe System Working Group:

National Safety Council

Road to Zero Coalition

Institute of Transportation Engineers

American Association of Retired Persons

American Association of State Highway Transportation Officials

America Walks

Federal Highway Administration

Highway Safety Research Center

Johns Hopkins University

National Association of City Transportation Officials

National Complete Streets Coalition

National League of Cities

National Highway Traffic Safety Administration

Transportation Research Board

Texas A&M Transportation Institute

Vision Zero Network

Wayne State University

World Bank

World Resources Institute

World Road Association
28 Safe System Strategic Plan

Appendix B – Summary of 2019 Safe System Practitioners Survey 
ANSWER CHOICES RESPONSES

Public Agency 33.13% 53

Consultant 13.13% 21

Manufacturer 5.00% 8

Association/Non-Profit 30.63% 49

Academia 9.38% 15

Other (please 

TOTAL

specify) 8.75% 14

160

Q1 What is your organizational affiliation?

Answered: 160 Skipped: 0

Public Agency

Consultant

Manufacturer

Association/Non

-Profit

Academia

Other (please

specify)

0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100%

Road to Zero Coalition Safe Systems Survey SurveyMonkey
ANSWER CHOICES

Administrator/Executive 

Transportation Practitioner (ie: Planner, Engineer, Program Specialist)

Public Safety Professional (ie: law enforcement, fire, EMS)

Product Developer

Educator/Researcher

Advocate

Other (please specify)

TOTAL

RESPONSES

24.38%

21.88%

6.88%

2.50%

20.00%

16.88%

7.50%

39

35

11

4

32

27

12

160

Q2 What is your role in advancing safety?

Answered: 160 Skipped: 0

Administrator/E

xecutive

Transportation

Practitioner...

Public Safety

Professional...

Product

Developer

Educator/Resear

cher

Advocate

Other (please

specify)

0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100%

Road to Zero Coalition Safe Systems Survey SurveyMonkey
ANSWER CHOICES RESPONSES

I am very familiar with the concept and how it can be applied to improve safety 41.25% 66

I have some familiarity with the concept, but limited working knowledge 40.00% 64

I have heard of the term, but need to learn more 13.75% 22

I am not familiar with the concept or its application

TOTAL

5.00% 8

160

Q3 What is your level of knowledge and understanding of Safe Systems?

Answered: 160 Skipped: 0

I am very

familiar wit...

I have some

familiarity...

I have heard

of the term,...

I am not

familiar wit...

0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100%

Road to Zero Coalition Safe Systems Survey SurveyMonkey
ANSWER CHOICES

Widely practiced

Deployed on a targeted basis

Sometimes practiced

Rarely practiced

Never practiced

TOTAL

RESPONSES

11.25% 18

18.13% 29

31.25% 50

24.38% 39

15.00% 24

160

Q4 If you work for a public agency, to what degree does your

organization practice safe systems? If you do not work for a public

agency, to what degree do you observe Safe Systems thinking being

employed in the jurisdiction where you live.

Answered: 160 Skipped: 0

Widely

practiced

Deployed on a

targeted basis

Sometimes

practiced

Rarely

practiced

Never practiced

0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100%

Road to Zero Coalition Safe Systems Survey SurveyMonkey
ANSWER CHOICES RESPONSES

Lack of funding 26.88% 43

Lack of leadership support 20.63% 33

Lack of knowledge/understanding by practitioners 35.63% 57

Lack of Safe Systems guidance and tools 7.50% 12

Lack of 

TOTAL

training on Safe Systems 9.38% 15

160

Q5 What is the biggest hurdle to implementing Safe Systems within the

jurisdiction where you work and/or live?

Answered: 160 Skipped: 0

Lack of funding

Lack of

leadership...

Lack of

knowledge/un...

Lack of Safe

Systems...

Lack of

training on...

0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100%

Road to Zero Coalition Safe Systems Survey SurveyMonkey
Q6 What policies, resources, guidance, or standards do you need to

apply a Safe Systems approach where you work and/or live?

Answered: 160 Skipped: 0

# RESPONSES

1 consistent and frequest messages from FHWA and NHTSA, guidance and tools

2 N/A

3 A set of guidelines for the implementation of Safe Sytems approach would be a good first step.

4 Information for everyone that’s clear and actionable. Not sure who Safe Systems needs to be in

touch with, facilities team or Human Resources?

5 We need to start at the beginning.

6 More guidance on the details of what the safe systems approach is.

7 Safety Countermeasures

8 Complete Streets policies, Federal Complete Streets policy, Vision Zero adoption, wider

dissemination of existing FHWA resources, more FHWA training for state and local agencies,

9 Complete streets, vision zero

10 Not sure

11 Unsure

12 sf

13 NA

14 We need a federal initiative/directive/policy to provide guidance to state DOTs since they hold

most of the money for state distribution.

15 We are now start some less expensive implementation approaches

16 Processes that allow evaluation of safe systems, such as city code, etc..

17 We use a safe systems approach in applying or manufacturing safety systems but the term "Safe

Systems" is not in my vocabulary.

18 We had a consultant come and provide Safe Systems recommendations in our local community.

However, we need funding through the township or the state DOT to enact many of the

infrastructure-related ones. Also need additional guidance for the community to help garner public

support.

19 allocated funding, education

20 Prescriptive guidance

21 N/A

22 Do not know

23 Targeted educational materials with case studies

24 Education

25 Education & advocacy

26 Plain language information to distribute

27 Unsure

28 N/a

29 A dedicated decision to place Vision Zero above other priorities

Road to Zero Coalition Safe Systems Survey SurveyMonkey

Responses shown are a sampling of total responses.
Q7 How can the RTZ Coalition best help to advance the knowledge and

practice of Safe Systems in the US?

Answered: 160 Skipped: 0

# RESPONSES

1 keep it in the national dialogue, a topic in all conferences, and provide guidance and tools

2 N/A

3 A set of guidelines for the implementation of Safe Systems approach would be a good first step.

4 Targeted outreach

5 begin with an online guide and/or webinar to provide the basics., then more specific training.

6 Provide more information on this initiative

7 Share information at events such as Lifesavers and GHSA

8 Educate, Create public awareness, Convene stakeholders

9 Continue to provide resources

10 Training/education of relevant agencies

11 Continuing to provide information to the constituencies working to implement Safe Systems

12 educate

13 continuing to reach out to national organizations that can help promote

14 It needs to start at the federal level as an example for states and local municipalities.

15 through webinars

16 Continued outreach efforts

17 Funding

18 How best to leverage existing resources and/or braid funding

19 More public awareness, educating legislators

20 Education/promotion

21 Be vocal and visible to the general public

22 Spread more knowledge, media outreach

23 Publish case studies and practical tech transfer materials to state agency decision makers

24 Community Engagement

25 Continue with mission

26 Provide materials such as PowerPoints and handouts

27 Awareness campaign

28 Advicacy

29 A continued outside the box thinking that would increase the desire of private corporations and

government agencies to be a part of the RTZ

30 provide support

31 tbd

32 Model state guideline language would be helpful

33 We need a Safe Systems 101 to get leadership buyin.

Road to Zero Coalition Safe Systems Survey SurveyMonkey

Responses shown are a sampling of total responses.
37 Safe System Strategic Plan

Report No. FHWA-SA-21-088