http://safety.fhwa.dot.gov

Local and Rural Road Safety Briefing Sheets

Making Local and Rural Roads Safer 

for Pedestrians and Bicycles

Introduction

In recent years, pedestrian and bicyclist fatalities have accounted for roughly 16 percent of all traffic fatalities, according 

to the Fatality Analysis Reporting System. Approximately 25 percent of nationwide pedestrian and bicycle fatal and 

injury crashes occur on rural roadways. In contrast to urban roadways, rural roads have certain characteristics that can 

increase the severity of crashes for pedestrians and bicyclists, such as higher average vehicle speeds and uncontrolled 

pedestrian and bicycle crossings. 

Pedestrians and bicyclists use local and rural roads for commuting, recreation, and necessity. Bicyclists in local and rural 

areas may vary in their levels of ability and expertise in riding with motor vehicle traffic; for example, more experienced 

or competitive bicyclists tend to prefer using the roadway rather than separate facilities, while inexperienced bicyclists 

may lack the confidence, and perhaps the skills necessary, and are sometimes hesitant to use the roadway. Pedestrian 

facilities vary in local and rural areas and needs vary by age and ability. This is especially true in areas where young 

children or an aging population use the pedestrian facilities, such as areas near schools or elderly care facilities.

Strategies for Improving Pedestrian and Bicycle Safety

There are several enhancements that can be introduced to improve safety for pedestrians and bicyclists. The safety 

treatments shown in the table below can be employed to improve pedestrian and bicycle safety at intersections in 

particular. The table also shows the associated crash modification factor (CMF)1

 or crash reduction, the safety issue 

addressed, and the typical cost of implementation. 

Countermeasure Safety Issue Addressed Crash Modification Factor 

or Crash Reduction

Typical 

Implementation Cost

Implement a leading pedestrian 

interval

Eliminates vehicle-pedestrian conflicts for a 

defined period of the shared green cycle by 

allocating a pedestrian-only walk phase

CMF = 0.554-0.63 N/A

Install pedestrian countdown 

timer signal heads

Indicates to pedestrians the length of time left 

in a walk cycle, thereby potentially decreasing 

the volume of pedestrians entering the 

intersection after the walk cycle terminates

CMF = 0.30 >$10,000 per 

intersection

High Intensity Activated 

Crosswalk (HAWK) pedestrian 

activated beacon

Improve visibility of and motorist compliance 

with mid-block pedestrian crossings

CMF = 0.309 $50,000 to $100,000

Install transverse rumble strips 

prior to pedestrian crossings 

(rural areas only)

Increase driver awareness of unsignalized 

intersection and mid-block pedestrian 

crossings

CMF = 0.76 <$5,000

Narrow crossing locations 

through use of curb extensions 

median pedestrian refuges

Both create shorter crossing distances and 

increased pedestrian visibility

Unknown $10,000 to $25,000
Countermeasure Safety Issue Addressed Crash Modification Factor 

or Crash Reduction

Typical 

Implementation Cost

Lighting (e.g., intersections, 

driveways, crosswalks, bus stops)

Increase visibility of pedestrians and bicyclists CMF = 0.41-0.58 $25,000 to $50,000

Marked pedestrian crossing 

(i.e., retroreflective crosswalk 

pavement markings, fluorescent 

sign sheeting, and other highvisibility elements)

Improve visibility of pedestrians and 

concentrate crossing to a single marked 

location, whether at an intersection or midblock crossing

Unknown $1,250 to $5,000 per 

approach

Bicycle and/or pedestrian 

warning signs

Increase driver awareness of a high volume of 

crossing bicyclists and/or pedestrians

Unknown >$1,000

The following list of roadway elements and associated safety enhancements can be used by local and tribal 

transportation agencies, town councils and commissions, and developers to design or approve road projects. These 

enhancements can improve safety for drivers, too.

• Intersection offsets – Offset intersections 

may discourage pedestrians from crossing at a 

marked intersection crosswalk and “encourage” 

pedestrians to cross at midblock locations that 

are not marked. By aligning intersections and 

driveways to tie at a single location, pedestrian 

safety enhancements at that location can be more 

impactful. 

• Approach angles – Providing intersection 

approaches with little to no skew offers motorists 

more sight distance to detect approaching 

motorists, pedestrians, and bicycles without the 

need to turn their entire body. Having little to no 

skew is especially important to older drivers, who 

may have a limited range of motion to scan approaching traffic in several directions.

• Presence or width of shoulders – At locations where shoulders are not present or are narrow, the addition 

of shoulders or extra shoulder width may allow pedestrians and bicyclists to travel with a buffer from moving 

traffic without impeding vehicular flow.

Example of an Offset Intersection
• Driveway locations – Prohibiting driveways within an intersection’s functional area helps to focus the driver’s 

attention on the intersection, including the presence of pedestrians and bicycles, instead of being distracted by 

other surrounding activities.

• Number of driveways – Consolidating several driveways into a single entrance can improve pedestrian, bicycle, 

and motorist safety by limiting the number of conflict points. It is also important to locate this single entrance 

an ample distance away from the intersection to minimize conflicts.

• Curve/curb radii – A large curb radius essentially widens the intersection, making pedestrian crossing times 

longer and increasing exposure. It is important to balance the curb radius design between the needs of 

pedestrians and large commercial vehicles.

• Sight distance – Unrestricted sight distance at intersections and locations where pedestrians and bicycles are 

known to travel helps motorists perceive and react to their presence.

• Signs – Roadside signs should be mounted at an appropriate height such they do not interfere with pedestrian 

and bicycle movements, nor should the signs obstruct travelers’ ability to see oncoming traffic. 

• Roadside obstacles, including utility poles and mail boxes – Roadside obstacles can prevent motorists from 

recognizing approaching pedestrians and bicyclists and vice versa. The needs of pedestrians, bicyclists, and 

motorists should be considered during design and placement of such objects.

• Shoulder or edge line rumble strips – Be aware of frequently traveled bicycle routes when determining 

whether to place shoulder or edge line rumble strips. Where bicycles are present, include gaps in shoulder or 

edge line rumble strips.

The following enforcement, educational, and outreach opportunities exist for improving

pedestrian and bicycle safety:

• Educate pedestrians to walk against, not with, the flow of traffic and to stay off the travel lane.

• Encourage pedestrians and bicyclists to wear reflective or brightly colored clothing to improve their conspicuity.

• Educate school-aged children on safety practices that they should follow while waiting for the bus (e.g., stay out 

of the road, limit horseplay, be aware of traffic, etc.)

• Involve the community in improving pedestrian and bicycle safety by establishing advocacy or advisory groups, 

including those focused on children, older adults, and individuals with disabilities.

• Provide enforcement to target speeding and aggressive driving maneuvers in strategic locations with a high 

concentration of pedestrians and bicyclists, such as school zones.
Resources

The following resources provide more details related to improving safety for bicyclists and pedestrians:

Federal Highway Administration, “Local and Rural Road Safety Program: Training, Tools, Guidance 

and Countermeasures for Locals.” Available at: http://safety.fhwa.dot.gov/local_rural/training/

Federal Highway Administration, Non-Motorized User Safety: A Manual for Local Rural Road 

Owners, FHWA-SA-12-017 (Washington, DC: 2012).

Available at: http://safety.fhwa.dot.gov/local_rural/training/fhwasa010413/

FHWA, “Pedestrian and Bicycle Safety” website. Available at: http://safety.fhwa.dot.gov/ped_bike/

Transportation Research Board, NCHRP Report 500: Guidance for Implementation of the AASHTO 

Strategic Highway Safety Plan, Volume 18: A Guide for Reducing Collisions Involving Bicycles, 

National Cooperative Highway Research Program (Washington, DC: Transportation Research 

Board, 2008). Available at: http://onlinepubs.trb.org/onlinepubs/nchrp/nchrp_rpt_500v18.pdf

Transportation Research Board, NCHRP Report 500: Guidance for Implementation of the AASHTO 

Strategic Highway Safety Plan, Volume 10: A Guide for Reducing Collisions Involving Pedestrians, 

National Cooperative Highway Research Program (Washington, DC: Transportation Research 

Board, 2004). Available at: http://onlinepubs.trb.org/onlinepubs/nchrp/nchrp_rpt_500v10.pdf

Additional resources include:

American Association of State Highway and Transportation Officials (AASHTO), Guide for the Planning, Design, and 

Operation of Pedestrian Facilities ((Washington, DC: July 2004). 

American Association of State Highway and Transportation Officials (AASHTO), Guide for the Development of Bicycle 

Facilities 2012, Fourth Edition (Washington, DC: 2012).

1

 A crash modification factor (CMF) is a measure of the safety effectiveness of a particular treatment or design element. A CMF less 

than 1.0 indicates that a treatment has the potential to reduce crashes, while a CMF greater than 1.0 indicates that a treatment has 

the potential to increase crashes. A CMF is determined by dividing the estimated number of crashes with a safety treatment by the 

estimated number of crashes without a safety treatment. For example, if an intersection experiences 10 crashes per year before 

a treatment is applied and 8 crashes per year after a treatment is applied, the CMF for the treatment is 0.8, netting a 20 percent 

reduction in crashes.

FHWA-SA-14-090