COMMISSION STAFF WORKING DOCUMENT Monitoring Road Safety Progress in the EU - Luxembourg Accompanying the document COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Report on the Implementation of the EU Road Safety Policy Framework at the Mid-Point
Date: 2026-02-13
Institutions: Directorate-General for Mobility and Transport, European Commission
Subjects: EU investment, Luxembourg, accident prevention, common transport policy, innovation, road safety, road transport, transport accident, transport infrastructure, transport statistics

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 13.2.2026  SWD(2026) 50 final  COMMISSION STAFF WORKING DOCUMENT Monitoring Road Safety Progress in the EU - Luxembourg Accompanying the document COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Report on the Implementation of the EU Road Safety Policy Framework at the Mid-Point {COM(2026) 77 final} - {SWD(2026) 33 final} - {SWD(2026) 34 final} - {SWD(2026) 35 final} - {SWD(2026) 36 final} - {SWD(2026) 37 final} - {SWD(2026) 38 final} - {SWD(2026) 39 final} - {SWD(2026) 40 final} - {SWD(2026) 41 final} - {SWD(2026) 42 final} - {SWD(2026) 43 final} - {SWD(2026) 44 final} - {SWD(2026) 45 final} - {SWD(2026) 46 final} - {SWD(2026) 47 final} - {SWD(2026) 48 final} - {SWD(2026) 49 final} - {SWD(2026) 51 final} - {SWD(2026) 52 final} - {SWD(2026) 53 final} - {SWD(2026) 54 final} - {SWD(2026) 55 final} - {SWD(2026) 56 final} - {SWD(2026) 57 final} - {SWD(2026) 58 final} - {SWD(2026) 59 final}  
 
 
Contents 

1. Summary .................................................................................................................... 2 

2. Road Safety Strategy and Measures .......................................................................... 2 

2.1 Road Safety Strategy............................................................................................ 2 

2.2 Road Safety Governance...................................................................................... 3 

2.3 Main Safety Issues ............................................................................................... 3 

2.4 Road Safety Targets ............................................................................................. 3 

2.5 Road Safety Measures.......................................................................................... 3 

3. Road Safety Progress ................................................................................................. 4 

3.1 Road Safety Outcomes ......................................................................................... 4 

3.2 Road Safety Performance Indicators ................................................................... 6 

4. Monitoring Road Safety Strategy Implementation .................................................... 7 

4.1 Implementation Progress ..................................................................................... 7 

5. Conclusions and Recommendations ............................................................................ 10 

1 

 
 
 
 
 
 
 
 
 
1. Summary 

In 2024, Luxembourg was well below the EU average (45), with 27 road fatalities per million 
inhabitants. Compared to 2019, a decrease of 18% (albeit based on small absolute numbers) 
was achieved. In 2023, 346 people were seriously injured in road crashes, which is 40% higher 
than the respective figure in  2019. The majority of fatalities in  2023 were recorded in  road 
crashes on roads outside urban areas. On the other hand, the majority of serious injuries were 
recorded in crashes inside urban areas. 

Two road safety action plans have been in force during the examined period, covering the 
periods 2019-2023 and 2024-2028. The latter was published in January 2025. In the first road 
safety action plan, a total of 31 road safety measures grouped into eleven road safety challenges 
were included, while in  the action plan 2024-2028, 20 measures grouped into four fields of 
application were included. The targets of halving road fatalities and serious injuries in 2030 
compared to 2020 have been set.  

Based on the latest available data, Luxembourg appears to have made reasonable progress and 
is moving in the right direction towards meeting the 2030 target of halving the number of 
fatalities.  On  the  other  hand,  Luxembourg  needs  more  efforts  to  meet  the  2030  target  of 
halving  the  number  serious  injuries.  It  is  noted  however  that  the  small  number  of  road 
crashes in Luxembourg may cause statistical distortions. 

Regarding the progress of the implementation of the measures foreseen in the action plan 2024-
2028, there is a smooth implementation flow without any particular gaps being reported. 
Luxembourg starts from a high level in most examined road safety areas. Based on the self-
reported assessment, the baseline is assessed as high in 15 areas and medium in 5 road safety 
areas. The implementation of measures planned for this period has been completed in 10 road 
safety areas, while the measures in 7 areas are on track. On the other hand, the implementation 
of the measures in 3 areas has not started yet. 

Despite the fact that the implementation progress of the foreseen actions is well on track, the 
reduction in the number of seriously injured is still below the target set for this period. 
The number of fatalities is small and subject to large annual fluctuations. The possible way 
forward to address this could be by either:  

reviewing the degree of implementation of the actions, 

• 
•  exploring any other actions focussing on the three main road safety issues: speeding, 

driving under the influence of alcohol/drugs and driver distraction. 

2. Road Safety Strategy and Measures 

2.1 Road Safety Strategy 

On May 13, 2019, the Road Safety Action Plan 2019-2023 was published, which had been 
developed by the road safety working group. The working group, which brought together many 
stakeholders, decided to continue the Vision Zero strategy and adapt the action plan along the 
way  in  order  to  develop  measures  to  reduce  the  number  of  road  fatalities.  This  action  plan 
featured 11 challenges and a total of 31 measures. 

The next National Road Safety Plan 2024-2028 was approved by the Government Council 
on 29 November 2024. It is in line with the international ‘Vision Zero’ strategy. This action 

2 

 
 
 
 
 
 
 
plan  focuses  on  prevention  and  awareness-raising,  but  also  on  cracking  down  on  the  main 
causes of serious and fatal crashes. 

Table 19.1: National road safety action plans  

Timeframe 
Lead Authority 

Link 

Luxembourg 
2019-2023; 2024-2028 
Ministry of Mobility and Public Works - Department of Transport 
2019-2023: https://transports.public.lu/dam-assets/publications/20190513-plan-
d-action-securite-routiere-2019-2023.pdf 
2024-2028: 
documents/actualites/2025/01/30-backes-pnsr/confrence-de-presse-pnsr.pdf 

https://gouvernement.lu/dam-assets/images-

2.2 Road Safety Governance 

The Ministry of Mobility and Public works is responsible for the formulation of the national 
road safety strategy.  

The Ministry of Mobility and Public works and the Police are responsible for the monitoring 
of road safety developments in the country. 

2.3 Main Safety Issues 

According  to  national  representatives,  the  main  safety  issues  in  Luxembourg,  which  are 
targeted in the new action plan, are the following: 

•  speeding  
•  driving under the influence (of alcohol or drugs).  
•  driver distraction 

2.4 Road Safety Targets 
The following targets have been set in the Road Safety Action Plan of Luxembourg1: 

•  By 2030, a 50% reduction in fatalities compared to 2020 

•  By 2030, a 50% reduction in serious injuries compared to 2020. 

2.5 Road Safety Measures 

A total of 20 road safety measures grouped into four fields of application are included in the 
road safety action plan 2024-2028 of Luxembourg2.  

1  ITF  (2023),  Road  Safety  Annual  Report  2023  –  Country  Profile  Luxembourg,  OECD  Publishing,  Paris. 
Available at: 
https://www.itf-oecd.org/sites/default/files/luxembourg-road-safety.pdf 
2 https://gouvernement.lu/dam-assets/images-documents/actualites/2025/01/30-backes-pnsr/confrence-de-
presse-pnsr.pdf 

3 

 
 
 
 
 
 
 
 
 
 
 
 
 
Table 19.2: Road safety fields of application and number of measures in Action Plan 2024-
2028 

Field of application 
1.  Human behaviour 

2.  Legislation 

3.  Monitoring and control 

4.  Road Infrastructure 

Total 

3. Road Safety Progress 

3.1 Road Safety Outcomes 

Measures 

5 

7 

4 

4 

20 

In Luxembourg, 26 people were killed and 346 people were seriously injured in road crashes 
in  2023.  Based  on  preliminary  data  for  2024,  Luxembourg  ranked  4th  out  of  the  27  EU 
countries in terms of the lowest numbers of fatalities per million inhabitants. In fact, 27 road 
fatalities per million inhabitants were recorded that year, which is well below the EU average 
(45).  

Figure 19.1 Mortality rates by country, 2024  

Sources: CARE database on road crashes; population data from Eurostat (online data code demo_pjan). 

In 2024, the number of fatalities decreased by 18% compared to 2019. Thus, Luxembourg is 
moving in the right direction to meet the 2030 target of halving the number of fatalities3. It is 
noted  that  annual  numbers  of  road  fatalities  in  Luxembourg  are  particularly  small  and  are, 
therefore, subject to substantial annual fluctuation.  

On the other hand, the number of serious injuries increased by 40% between 2019 and 2023. 
Thus, Luxembourg may not meet the 2030 target of halving the number of serious injuries. 
More specifically, the observed number of serious injuries (346) was 1.7 times higher than the 

3 For all Member States, 2019 has been used as the baseline year for the monitoring of 2030 targets in this report, 
which is used at EU level. Luxembourg has set 2020 as the baseline year. Considering the national baseline, in 
2024, Luxembourg is well on track to meet the 2030 target of halving road fatalities. In 2023, the number of 
serious injuries was about 1.9% higher than the target value for this year.  

4 

 
 
 
 
 
 
 
 
 
 
target value for 2023 (203 serious injuries).  

Figure 19.2 Road fatalities and target 2030  
(Source CARE database) 4 

Figure 19.3 Serious road injuries  
(Source: CARE database) 5 

4 It is noted that the global COVID-19 pandemic had an impact on the CARE data for 2020 and 2021 for many 
European countries. Traffic volumes dropped sharply during the pandemic due to traffic restrictions, which was 
associated with a significant drop in road traffic crashes and fatalities. 
5 It is noted that the global COVID-19 pandemic had an impact on the CARE data for 2020 and 2021 for many 
European countries. Traffic volumes dropped sharply during the pandemic due to traffic restrictions, which was 
associated with a significant drop in road traffic crashes and fatalities. 

5 

 
 
 
 
  
 
 
 
 
 
An overview of the evolution of road fatalities and serious injuries for the years 2019 and 2023 
(year with the latest available detailed crash data) is provided below for specific types of roads, 
crashes and road users. The majority of fatalities in 2023 were recorded on roads outside urban 
areas. On the other hand, the majority of serious injuries were recorded inside urban  areas. 
Compared to 2019, the number of serious injuries increased by 40%. The highest increase 
was recorded for PTW riders (76%) and cyclists (73%) and the lowest increase was recorded 
for serious injuries outside urban areas.  

Table 19.3: Evolution of road fatalities, 2019-2023 

Fatalities 

2019 

2023 

%  
in 2023 

% change 
2019-2023 

Total road fatalities 

Inside urban areas 

Outside urban areas 

Motorways 

Single vehicle crashes 

Multi vehicle crashes 

Car occupants 

PTW riders 

Cyclists 

Pedestrians 

22 

3 

16 

3 

12 

8 

16 

4 

0 

2 

26 

9 

13 

4 

11 

12 

13 

5 

2 

4 

- 

35% 

50% 

15% 

42% 

46% 

50% 

19% 

8% 

15% 

+18% 

- 

-19% 

- 

-8% 

+50% 

-19% 

- 

- 

- 

Table 19.4: Evolution of serious injuries, 2019-2023 

Serious Injuries 

2019 

2023 

%  
in 2023 

% change 
2019-2023 

Total serious injuries 

Inside urban areas 

Outside urban areas 

Motorways 

Single vehicle crashes 

Multi vehicle crashes 

Car occupants 

PTW riders 

Cyclists 

Pedestrians 

248 

102 

125 

21 

78 

128 

117 

59 

22 

41 

346 

174 

143 

29 

128 

170 

142 

104 

38 

49 

- 

50% 

41% 

8% 

37% 

49% 

41% 

30% 

11% 

14% 

+40% 

+71% 

+14% 

+38% 

+64% 

+33% 

+21% 

+76% 

+73% 

+20% 

3.2 Road Safety Performance Indicators 

In Luxembourg, self-reported drink-driving is substantially higher than the EU average. The 
passenger car fleet is considerably younger than the EU average. 

6 

 
 
 
 
 
 
 
 
 
Table 19.5: Road Safety Performance Indicators, 2022 or latest available year (Source: 
ERSO, Country Profiles) 

Luxembourg 

EU 

Speeding6 
% of passenger cars travelling within speed limits a 

Motorways 
Rural Roads 
Urban Roads (50km/h) 

Seat belt & CRS use rates (%) a,b  

Front 
Rear 
Child restraint systems (roadside observations) 
Child restraint systems (in-vehicle inspections) 

Helmet use rates (%) a  

PTW driver 
PTW passenger 
Cyclist (urban roads) 

DUI of Alcoholc 
(self-reported) 

% of car drivers who have driven at least once in the 
last 30 days over the legal limit 

Driver Distraction a 

% of drivers not using hand-held mobile device/phone 
while driving 

Vehicle Safety 

% of new passenger cars rated with 4 EuroNCAP stars 
and above a 
Average age of passenger car fleet (years)d 

/ 
/ 
/ 

/ 
/ 
/ 
/ 

/ 
/ 
/ 

24.1 

/ 

/ 

8.0 

- 
- 

93.1 
75.3 
67.0 
- 

97.0 
94.4 
37.8 

11.8 

94.8 

83.6 

12.5 

Sources: a Baseline project, b ETSC (2022), c ESRA3 project (2024), d ACEA (2025) 

4. Monitoring Road Safety Strategy Implementation 

This chapter discusses the implementation progress of the Road Safety Action Plan 2024-2028, 
based on the self-reported assessment.   

4.1 Implementation Progress 

Road Safety Management 

Based on the self-reported assessment, Luxembourg starts from a high level in all road safety 
areas related to Road Safety Management. In 2024, the implementation of measures related 
to  national  road  safety  authority  and  national  road  safety  observatory  has  been  completed, 
while the remaining measures are on track.  

More specifically, changes in legislation are made on a regular basis. The national road safety 
authority  is  integrated  within  the  Ministry  of  Mobility  and  Public  works.  Also,  the 
“Administration  des  Enquètes  techniques”  was  created,  tasked  with  carrying  out  safety 
investigations in cases of crashes or serious incidents in the fields of civil aviation, railways 

6 An EU average is not available for speeding, due to different legal speed limits among countries, which does not 
allow for a straightforward comparison.  

7 

 
 
 
 
 
 
 
 
 
(including tramways), road transport, maritime and river transports. No specific budget for road 
safety exists in Luxembourg, but it is integrated in the general budget. 

Table 19.6: Self-reported assessment of implementation progress of measures related to road 
safety management 

B1 

Road Safety Management 

1 

2 

3 

4 

National road safety authority 

National road safety budget 

Road safety legislation 

National road safety observatory 

Safe Road User Behaviour 

Baseline 
Assessment (2024) 

high 

- 

high 

high 

Progress 
(2024-2028) 

completed 

not applicable 

on track 

completed 

In relation to the pillar of Safe Road User Behaviour, Luxembourg starts from a high level in 
2024 in the areas of enforcement and training of novice drivers, and from a medium level in 
all remaining areas. The implementation of measures related to vulnerable road users, planned 
for the first year of the action plan, has been completed, the measures related to enforcement 
and campaigns are on track, while the implementation of measures related to the education and 
training of novice drivers has not started yet.  

More specifically, police enforce the rules on a regular basis through automated systems. Two 
communication  campaigns  are  conducted  per  year.  Among  the  measures  for  VRUs  is  the 
introduction of a 1.5m rule while overtaking a bicycle. Regarding the training of novice drivers, 
the current status is reviewed in the scope of the new Driving Licence Directive. The options 
for  introducing  new  school  road  safety  education  programmes  are  examined.  As  far  as 
professional drivers are concerned, no measures have been planned so far. 

Table 19.7: Self-reported assessment of implementation progress of measures related to road 
user behaviour 

B2 

Safe Road User Behaviour 

1 

2 

3 

4 

5 

6 

Enforcement 

Education 

New drivers training 

Communication campaigns 

Measures for vulnerable road users 

Measures for professional drivers 

Safe Speeds 

Baseline 
Assessment (2024) 

high 

medium 

high 

medium 

medium 

- 

Progress 
(2024-2028) 

on track 

not started 

not started 

on track 

completed 

not applicable 

Regarding  the  Safe  Speeds  pillar,  Luxembourg  starts  from  a  high  level  in  the  areas  of 
enforcement and monitoring of speeding, from a medium level in the area of update of speed 

8 

 
 
 
 
 
 
 
 
 
limits and from a low level in the area of campaigns. The implementation of measures related 
to campaigns on speeding has not started yet, while all remaining measures are on track.  

Table 19.8: Self-reported assessment of implementation progress of measures related to safe 
speeds 

B3 

Safe Speeds 

1 

2 

3 

4 

Update of speed limits 

Enforcing speed limits 

Campaigns on speeding 

Monitoring speeding 

Baseline 
Assessment (2024) 

medium 

high 

low 

high 

Progress 
(2024-2028) 

on track 

on track 

not started 

on track 

In Luxembourg, the speed limits of the whole road network are being assessed on a regular 
basis. Also, new automated speed cameras have been installed and speed checks are carried 
out by the police on a regular basis. On the other hand, campaigns against speeding are carried 
out less frequently.  

Safe Roads 

Regarding the Safe Roads pillar, based on the self-reported assessment, the baseline is high in 
all road safety areas, except the area of city mobility and safety plans, for which the baseline is 
assessed as low. The measures related to rural road safety interventions are on track, while the 
implementation of the measures of the remaining areas has been completed.  

No  measures  related  to  city  mobility  and  safety  plans  are  included  in  the  plan.  More 
specifically,  in  Luxembourg,  mobility  plans  in  municipalities  and  road  regulations  are  the 
competence of the municipalities. The Ministry has a very limited influence. 

Regarding  urban  infrastructure  for  VRUs,  the  Ministry  issued  mandatory  guidelines  on 
traffic calming measures to be implemented by the municipalities. 

As  far  as  the  road  design  standards  are  concerned,  new  roads  are  planned  according  to  the 
standards  of  directive  (EU)  2019/1936.  Also,  the  whole  road  network  is  being  assessed 
concerning road safety on a regular basis. 

Table 19.9: Self-reported assessment of implementation progress of measures related to safe 
roads 

B4 

Safe Roads 

1 

2 

3 

4 

5 

6 

City mobility & safety plans 

Urban infrastructure for VRUs 

Rural roads safety interventions 

Motorways safety management 

Road design standards 

Road safety audit and inspection 

Baseline 
Assessment (2024) 

low 

high 

high 

high 

high 

high 

Progress 
(2024-2028) 

not applicable 

completed 

on track 

completed 

completed 

completed 

9 

 
 
 
 
 
 
 
 
 
 
Safe Vehicles 

In relation to the pillar of Safe Vehicles, Luxembourg starts from a high level in the area of 
technical vehicle inspections and from a medium level in the area of automation preparation. 
No measures have been planned for the other two areas for Luxembourg. The implementation 
of  the  measures  related  to  technical  vehicle  inspections  has  been  completed,  while  the 
remaining measures are on track.  

In  Luxembourg,  technical  inspections  are  mandatory  for  all  vehicles  according  to  the  EU-
directives. Also, automation is considered possible under predefined conditions. 

Table 19.10: Self-reported assessment of implementation progress of measures related to safe 
vehicles 

B5 

Safe Vehicles 

1 

2 

3 

4 

Fleet renewal 

Promotion of ADAS 

Technical vehicle inspection 

Automation preparation 

Post Crash Care 

Baseline 
Assessment (2024) 

- 

- 

high 

medium 

Progress 
(2024-2028) 

not applicable 

not applicable 

completed 

on track 

Regarding the Post-Crash Care pillar, Luxembourg starts from a high level in both road safety 
areas  and  the  implementation  of  all  measures  has  been  completed.  Rescue  services  are  in 
constant effort to reduce reaction time, and a national network of First Responders has been 
established. Also, there is a national psychological support group for people injured in road 
crashes.  

Table 19.11: Self-reported assessment of implementation progress of measures related to post 
crash care 

B6 

Post Crash Care 

1 

2 

Reduce EMS reaction time 

Support people injured 

Baseline 
Assessment (2019) 

high 

high 

Progress 
(2019-2023) 

completed 

completed 

5. Conclusions and Recommendations 

In the national road safety action plan for the period 2019-2023 of Luxembourg, the targets of 
halving the numbers of road fatalities and serious injuries by 2030 compared to 2020 have 
been set. Two road safety action plans have been in force during the examined period, covering 
the periods 2019-2023 and 2024-2028. The latter was published in January 2025. In the first 
road  safety  action  plan,  a  total  of  31  road  safety  measures  grouped  into  eleven  road  safety 
challenges were included, while in the action plan 2024-2028, 20 measures grouped into four 
fields of application were included. 

10 

 
 
 
 
 
 
 
 
 
 
In 2024, with 27 road fatalities per million inhabitants, Luxembourg was below the EU average 
(45)  (ranked  4th  among  EU  countries  in  terms  of  the  lowest  numbers  of  fatalities  per 
population). Compared to 2019, the number of fatalities decreased by 18% (albeit based on 
small absolute numbers) in 2024, and the number of serious injuries showed an increase of 
40% in 2023.  

The new road safety action plan (2024-2028) is now in force. Regarding the progress of the 
implementation  of  the  measures  foreseen  in  the  in  this  action  plan,  there  is  a  smooth 
implementation flow without any particular gaps being  reported. The implementation  of 
measures  planned  for  this  period  has  been  completed  in  10  road  safety  areas,  while  the 
measures in 7 areas are on track. On the other hand, the implementation of the measures in 3 
areas has not started yet. 

Finally, the implementation progress of the foreseen actions is well on track and the trend in 
the  number  of  fatalities  (albeit  subject  to  large  annual  fluctuations)  is  downward. 
However, the reduction in the number of seriously injured is still not sufficient to meet 
the target set for this period. The possible ways forward to address this could be by:  

reviewing the degree of implementation of the actions,  

• 
•  exploring any other actions focussing on the three main road safety issues: speeding, 

driving under the influence of alcohol/drugs and driver distraction. 

11