Pedestrian Safety,

Urban Space
and Health
Research Report

Summary Document
 INTERNATIONAL TRANSPORT FORUM

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 SUMMARY DOCUMENT – 3

PEDESTRIAN SAFETY, URBAN SPACE AND HEALTH

SUMMARY DOCUMENT

This is a summary of the report Pedestrian Safety, Urban Space and Health. The report
was developed by a group of international experts representing 19 countries, under the aegis of
the Research Centre of the International Transport Forum at the Organisation for Economic Co-
operation and Development (OECD).

Recognising its wide benefits, the purpose of this report is to emphasize the importance of
walking as an integral part of the transport system and the vital need for policies to promote
walking at all levels of planning.

This summary document comprises the conclusions and recommendations, as well as the
table of contents of the full report, together with details of the experts who contributed to the
work.

This report was produced by a working group of experts. The report presents research findings and not necessarily
the views of International Transport Forum member country governments.

PEDESTRIAN SAFETY, URBAN SPACE AND HEALTH © OECD/ITF 2011

 SUMMARY DOCUMENT – 5

TABLE OF CONTENTS

CONCLUSIONS AND RECOMMENDATIONS 7 

TABLE OF CONTENTS OF THE FULL REPORT 14 

ACKNOWLEDGEMENTS AND LIST OF PARTICIPANTS 16 

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 SUMMARY DOCUMENT – 7

CONCLUSIONS AND RECOMMENDATIONS

Walking has great potential to contribute to high-level government agendas for more
sustainable development and should therefore take a central position in urban transport
policies. Ensuring that walking is an attractive alternative and complement to motorised
transport is a core response to the challenges of climate change, fossil fuel dependence,
pollution, maintaining mobility for an ageing population, health, and managing the explosion in
motorisation expected in low- and middle-income countries. Because trends established today
will determine the future of cities for many decades, action is needed now for the sustainable
cities of tomorrow.

1. Walking is the most fundamental form of mobility. It is inexpensive, emission-free,

uses human power rather than fossil fuel, offers important health benefits, is equally
accessible for all – except those with substantially impaired mobility – regardless of
income, and for many citizens is a source of great pleasure. Yet walking presents
challenges to society’s least robust individuals.
Almost everyone is a pedestrian. Walking is the original and most natural mode of
transport and the most important for maintaining good health.
Physical inactivity is a leading risk factor for health. Walking daily for as little as 30
minutes contributes to preventing the onset of numerous diseases linked to a lack of physical
activity. The World Health Organisation has demonstrated that the overall benefits of walking
outweigh any disadvantages associated with crash risk and exposure to pollution.
People with impaired mobility, using wheelchairs or mobility scooters, have at least
similar requirements to pedestrians for an environment that facilitates accessibility.
The Charter for pedestrians’ rights, adopted by the European Parliament in 1988 --
states that pedestrians have the right to live in a healthy environment and to enjoy freely the
amenities offered by public areas, under conditions that adequately safeguard their physical
and psychological well-being.

2. The vitality of a city is closely linked to people being out and about on foot for many
purposes. Beyond walking for access to goods and services, these other activities in
the urban space are collectively termed “sojourning”. Walking and sojourning are at
the heart of urban life and contribute to liveable, attractive, prosperous and
sustainable cities.
Cities are places to live, connect and socialise. Urban space is for sojourning as well as
moving around. Walking is fundamental to human existence and the quality of life.
Because walking connects people, it has an essential role in the liveability of cities,
sociability, learning, and developing one’s own personal independence and identity.
Pedestrians generally make the most efficient use of scarce space in cities. Pedestrian areas
and the intermingling of people bring vitality to cities and economic benefits to retailers.

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3. Walking is, however, the neglected transport mode and, despite being at the start and
end of all trips, is rarely captured in government statistics on mobility and is often
neglected in planning and policy development.
The simplest, most sustainable and cheapest means of locomotion has been largely
taken for granted – despite the fact that all trips begin or end on foot. Walking is a necessary
complement of public transport. However, motorised traffic has generally received priority,
exposing pedestrians to crash risks, pollutant emissions and noise. The entire urban
environment, including the road transport system, should be designed with greater priority
assigned to the needs of pedestrians.
Traditionally, street and urban design have not focused adequately on the needs of
pedestrians. Fortunately, in an acceleration of a trend that had by the 1960s already been set
by some pioneering cities and towns, the past practice of overlooking pedestrians’ needs in
favour of the car is now being reversed in many cities.

Decision-makers rely on mobility statistics, including data on personal travel behaviour,

to formulate strategic transport policies and to improve the safety and efficiency of transport
systems. However, published data rarely include walking, resulting in its exclusion from
analysis and policy discourse.
Despite some well known difficulties in measuring walking, it is an important activity,
representing as much as 50% of trips in urban areas. Figure 1 illustrates the share of walking in
all trips (urban and non-urban areas) and the average length of a walking trip in various OECD
countries. More comprehensive information on pedestrian mobility and safety would help better
understand the role of walking in modern life and the causes and consequences of pedestrian
injuries, including falls. Comprehensive data collection and analysis on all modes, including
walking, are needed to plan and design for optimum mobility. Such analyses should focus on
the efficiency, capacity, safety and flexibility of the transport system, to meet the current and
future needs of all citizens, including those who are least able.
Figure 1. Share of walking and average length of a walking trip
Share of journeys on foot as a percentage of all trips Average length of walking trip in km

France (2008)
New Zealand (2007)
Austria (2004)
Switzerland (2005)
Belgium (1999)
United States (2001)
The Netherlands (2007)
Germany (2002)
Norway (2005)
Finland (2004)
Sweden (2006)

0 0.5 1 1.5 2

Source: Various national travel surveys.

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4. Public institutions representing specifically the interests of pedestrians – including

the socially disadvantaged members of society who rely heavily on walking – are rare.
A large proportion of the pedestrian population comprises children and people with age
or mobility-related impairments. These groups are not well placed or equipped for making their
needs known to decision makers, and often lack support from lobby groups active in the
transport sector. As a result, the most vulnerable groups of pedestrians are inadequately
represented in urban policy-making. Indeed, no lead agencies for pedestrians at government
level could be identified in the survey undertaken for this study.
Walking is not simply a local matter. National governments and transport, land use and
health ministers have a responsibility to support and encourage walking through leadership and
by providing the necessary legal, administrative and technical frameworks. Responsibilities for
accommodating the needs of pedestrians and promoting walking are spread across a wide
range of organisations and ministries, resulting in no clear institutional responsibility at either
local or national levels for agencies to incorporate walking into their priorities. Central
government needs to address the lack of incentives that results from fragmentation.

5. Walking and public transport are interdependent elements of sustainable urban

mobility. Walking is facilitated by a well-connected network with pedestrian-friendly
infrastructure and well-designed urban space.
Walking is an integral part of travel on public transport; it is more convenient over
shorter distances and highly complementary to other transport modes. By strengthening public
transport services, including accessibility and security, pedestrians are more motivated to use
public transport in preference to private vehicles, thus contributing to a reduction in the number
of motorised vehicles in city centres.
Pedestrians should be provided with a well-connected network of footways designed to
minimise the effects of geographical, topographical, and physical barriers to pedestrian
mobility. This network crucially needs to provide easy access to public transport facilities. By
making decisions from the beginning that are favourable to walking, infrastructure costs will be
lower and affordability higher than if costly redesign is needed to rectify basic problems as what
takes ten years to build can take 100 years to replace.

6. Pedestrians are amongst the road users most vulnerable to traffic injury. It has
become highly challenging, especially for older and young people, to cope with the
complex, sometimes hostile, traffic conditions that characterise today’s cities and
towns.
Pedestrians do not pose a significant risk to other road users, yet are exposed to life-
threatening risks from them. However, they have been overlooked in the development of
current traffic codes which have been focussed on facilitating the flow of motorised traffic.
Insecurity, whether real or perceived, has a major impact on the decision to walk,
especially in relation to children and elderly people. Of particular concern is an observed
decline in walking among children, in part motivated by their parents’ perceptions that walking
is a high-risk activity.
At any given time, around 30% of pedestrians have impaired mobility (because they are
overloaded, or have temporary or permanent health impairments). Because of the ageing of the
population in many countries around the world, public authorities must prepare for a future
where a growing number of highly vulnerable people will be even more dependent on walking.

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7. Pedestrians suffer severe trauma from falls in public spaces and in traffic collisions
while crossing streets. The magnitude of the consequences of falls is known to be
underestimated. Older people have an elevated risk of severe injury and death from
both falls and traffic collisions.
It is estimated that more than 20 000 pedestrian fatalities occur annually in OECD
member countries, where pedestrian deaths range from 8 to 37% of all road fatalities
(Figure 2). Worldwide, the number of pedestrians killed every year on the road exceeds
400 000. In all countries, senior pedestrians (over 65 years of age) are the most at risk. In
OECD countries, the 65+ age group represents 13-20% of the population but they comprise
more than 50% of pedestrian fatalities.
A large but under-estimated, and sometimes ignored, share of pedestrian injuries
involves pedestrians falling in public spaces, accounting for up to 75% of all pedestrian injuries.
These injuries are partly due to an inadequate environment or poor maintenance of facilities.
This problem will increase with ageing of the population.

Figure 2.Pedestrian fatalities as a percentage of all road fatalities

26 OECD countries, 2009

Source: IRTAD

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8. Lowering motorised traffic speeds reduces the frequency and severity of crashes,
especially those involving pedestrians. Reducing speed also contributes to smoother
traffic flow, and enhances in many ways the liveability and sustainability of cities.
Pedestrian safety and the survival rate from collisions with vehicles are directly linked to
the speed of motorised traffic. Figure 3 illustrates the total distance required to stop at speeds
of 50 km/h and 30 km/h, respectively, taking into account driver reaction time. The risk of death
or serious injury to a pedestrian rises rapidly at impact speeds above 30 km/h. Travel speeds of
30 km/h can reduce the risk of fatal injury to a pedestrian by over 80% compared to travel
speeds at 50 km/h. Speeds above 30 km/h are too dangerous in mixed traffic zones and cities
should not permit speeds of more than 50 km/h on any road designed also to be used by
pedestrians.
The large majority of pedestrian injuries or fatalities occur in urban areas and, according
to police reports, 70-80% of those in traffic collisions occur while crossing the road, including
between 33% and 50% at pedestrian crossings. These findings highlight the importance of very
careful planning in the design of pedestrian crossings. Pavements and crossings have to be
planned for optimal functionality, providing a homogenous, predictable and forgiving
environment, with safe placement of street furniture, signs, lampposts, to allow for a maximum
visibility between pedestrians and drivers. ..

Figure 3. Stopping distances at 30 km/h and 50 km/h

Distance covered during reaction time (1

second)

Braking distance

Source: CERTU.

9. Motorisation has contributed to urban sprawl, and cities have evolved to

accommodate car use, with many negative impacts on life and social cohesion.
Changes are required now to manage the preponderant role of motorised traffic in
industrialised countries. This is also urgent in low- and middle-income countries,
which are now moving rapidly towards much higher levels of motorisation.
Cities are becoming increasingly dependent upon motor-vehicle transport as they
expand in ways that contribute to urban sprawl. Planning and design features are required to
reduce motor-vehicle use and promote alternative transport modes.
The needs of pedestrians should be considered when planning urban environments so
that people can easily walk or travel by public transport to and from their chosen destinations.
In addition, city planners should aim to develop pedestrian-friendly environments, including
footways that are conducive to walking.

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RECOMMENDATIONS

National governments and transport and health ministers can do much to support and
encourage walking, even when it is considered to be mainly a local policy issue. A clear vision
and political support at national level, backed by a systematic approach to understanding and
defining infrastructure quality for pedestrians, is an important complement to and support for
initiatives taken by local authorities. To achieve sustainable mobility, governments are invited
in particular to consider the following recommendations:
1. Integrate mobility management and urban planning and take better account of the needs of
pedestrians from the earliest stages of urban development projects and transport
investments, with the object of creating seamless, high-quality networks for pedestrian
activity.
2. Establish clear administrative responsibilities among relevant government departments at
all levels for co-ordinating walking programmes and initiatives. The purpose of such
arrangements is to stimulate and support actions in government and private sector
organisations in an integrated way. This might take the form of a national committee or an
interministerial co-ordinator supported by a national pedestrian observatory.
3. Improve knowledge about walking to adequately inform government policy development in
relation to this fundamental aspect of mobility. This requires a standardized methodology
for reporting, measuring and monitoring pedestrian mobility and injuries (from traffic
crashes and falls). Standardization would help to make the measurement of growth in
walking and sojourning a core indicator of urban sustainability and liveability. Efforts should
also be directed at the development of international comparisons of mobility and safety
statistics to agreed definitions. At a national level, such information could be collected by a
national pedestrian observatory.
4. Incorporate public transport services as an integrated part of the development of new
urban areas and the regeneration of existing areas, through planning guidance and
financial support for public services. This can support a long-term shift towards higher-
density, mixed-use, walking and transit-oriented urban form and a reduction in urban
sprawl.
5. Encourage the responsible authorities to give higher priority and more space to non-
motorised traffic and public transport in city centres. This includes a number of key actions:
providing easy, safe, well-maintained and secure pedestrian access to public transport and
to all city centre destinations; development of car-free areas; parking policies to discourage
over-use of cars in city centres; and regulations to prevent parking on pavements and
crossings, which undermines the quality of walking and, in severe cases, renders it
impracticable or dangerous.
6. Develop national pedestrian planning guidance for local administrations. Plans should be
required to give consideration to the impact of projects on pedestrians, and cyclists, as part
of project appraisals and environmental impact assessments. Plans should also consider
the development and setting of targets for future levels of walking, as well as addressing

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needs for financial support. Public participation through, for example, pedestrian
associations should be solicited in developing urban transport plans. Safety should receive
specific attention in national planning guidance, with recommendations for implementation
at the local authority level.
7. Encourage employers to implement a broad range of incentives for employees to include
active transport in commuting trips. Government agencies should demonstrate leadership
in this area.
8. Adopt a safe system approach for the design of the walking environment so that it is
organised in such a way that specific risk groups are not exposed to avoidable risks.
9. Implement traffic-calming policies and generalise 30 km/h zones in city centres, residential
areas and other high pedestrian activity areas. This should be based on a functional
classification of urban spaces, streets and road networks, supported by appropriate
infrastructure design criteria to create low-risk and amenable urban environments for
non-motorised road users. To be fully effective, best-practice education, communication
and enforcement programmes are needed. The development of intelligent speed
adaptation systems is also recommended.
10. Encourage the introduction of high-quality education programmes in schools and local
community centres, to teach safe road user behaviour and promote the benefits of walking
through a range of effective forms of communication. Adult retraining initiatives are also
indicated. School mobility plans should be developed aiming to produce a safe and
supportive environment in which children can walk to school.
11. Conduct a critical review of current traffic codes to strengthen the legal and financial
protection of pedestrians in case of a crash, and give higher priority to more vulnerable
road users in order to provide safer, more equitable conditions among the different road
users.
12. Develop a research strategy to better understand mobility trends in a changing society.
This should include evaluating the effectiveness of measures to reduce dependence on
private car travel, achieve higher-density urban forms, protect the environment, improve
health and achieve more efficient and sustainable use of energy.

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TABLE OF CONTENTS OF THE FULL REPORT

KEY MESSAGES AND RECOMMENDATIONS ........................................................................

CHAPTER 1. Introduction: Walking and the challenges of the 21st Century ..............................
1.1 Why the need for a publication devoted to a strategy for better provision for walking?
1.1.1 Walking as a cornerstone of liveable and sustainable cities ...............................
1.1.2 Walking concerns all, including the most vulnerable ...........................................
1.1.3 System-based approach .....................................................................................
1.2 The identity of walking ..................................................................................................
1.3. Vitality, liveability of the city ..........................................................................................
1.4 The objectives of a strategy for walking .......................................................................

CHAPTER 2. Walking: the neglected transport mode ...............................................................

2.1 Forgotten in data ..........................................................................................................
2.2. Forgotten in cities .........................................................................................................
2.3. Forgotten in the decisionmaking process .....................................................................

CHAPTER 3. Walking patterns in ITF/OECD countries .............................................................

3.1. Introduction...................................................................................................................
3.2. Measuring walking........................................................................................................
3.3. The share of walking ....................................................................................................
3.4. Distance, duration and speed.......................................................................................
3.5. The purpose of walking ................................................................................................
3.6. Choice of mode of transport .........................................................................................
3.7. Demographic differences .............................................................................................
3.8. Changes over time .......................................................................................................
3.9. Distances covered by walking ......................................................................................

CHAPTER 4. Walking, health and well-being ............................................................................

4.1. Introduction...................................................................................................................
4.2. Direct health benefits of physical activity and walking..................................................
4.3. Indirect benefits of promoting walking ..........................................................................
4.3.1 Air pollution..........................................................................................................
4.3.2 Noise ...................................................................................................................
4.4. Other considerations concerning walking.....................................................................
4.4.1 Adverse effects resulting from physical activity or exercise ................................
4.4.2 Falls .....................................................................................................................
4.4.3 Limiting physical and mental conditions ..............................................................
4.5. Conclusions ..................................................................................................................

CHAPTER 5. Safety and personal security: Facts and feelings ................................................

5.1. Non traffic accidents: pedestrian falls, stumbling .........................................................
5.2. Road traffic crashes involving pedestrians ...................................................................
5.3. Personal security ..........................................................................................................

CHAPTER 6. Key elements and planning principles to promote walking .................................

6.1 Integration of mobility and urban planning ...................................................................

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6.2. Development of public transport services and urban areas .........................................

6.2.1 Town planning .....................................................................................................
6.2.2 Public transport ...................................................................................................
6.2.3 Car sharing, car pooling ......................................................................................
6.2.4 Parking policy – Mobility management ................................................................
6.2.5 Urban tolls and walking .......................................................................................
6.2.6 Principles of technical design for the development of public transport ................
6.3. Urban space for non-motorised traffic and public transport .........................................
6.3.1 General Principles ...............................................................................................
6.3.2 Barrier Free Design .............................................................................................
6.3.3 Public Transport ..................................................................................................
6.3.4 Pedestrian crossings ...........................................................................................
6.3.5 Conclusions .........................................................................................................
6.4. Incentives to promote walking ......................................................................................
6.4.1 Incentives associated with increased pedestrian activity ....................................
6.4.2 Summary .............................................................................................................
6.5. Speed management .....................................................................................................
6.5.1 Vehicle speed: A major problem for pedestrians.................................................
6.5.2 Speed management measures ...........................................................................
6.5.3 Road User Behaviour ..........................................................................................
6.5.4 Vehicle Technology .............................................................................................
6.5.5 Conclusions .........................................................................................................
6.6. Education and communication .....................................................................................
6.6.1 Educating pedestrians .........................................................................................
6.6.2 Communication tools and personnel ...................................................................
6.6.3 Communication in the cities ................................................................................
6.6.4 Conclusion...........................................................................................................
6.7. Legislation and traffic codes .........................................................................................
6.7.1 Need for a critical overview of the current national traffic rules ...........................
6.7.2 A search for equity ..............................................................................................
6.7.3 Enacting rules to improve the comfort and safety of pedestrians........................
6.7.4 Conclusions .........................................................................................................
6.8. New technologies to encourage and facilitate pedestrian mobility ...............................
6.8.1 Innovations to improve safety..............................................................................
6.8.2 Innovations to facilitate mobility...........................................................................
6.8.3 Implementation issues.........................................................................................
6.9. Summary ......................................................................................................................

CHAPTER 7. Need for a walking strategy: role of governments and stakeholders ...................
7.1 Understanding pedestrian quality needs ......................................................................
7.2. Developing a walking strategy......................................................................................

CHAPTER 8. Conclusions and recommendations

8.1 Conclusions ..................................................................................................................
8.2 Recommendations .......................................................................................................
8.3 Summary ......................................................................................................................

BIBLIOGRAPHY ........................................................................................................................

WORKING GROUP MEMBERS ................................................................................................

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ACKNOWLEDGEMENTS AND LIST OF PARTICIPANTS

This report is the result of a three-year co-operative effort by an international group of experts
representing 19 countries as well as the World Health Organisation.

The Working Group was chaired by Mr. Thanos Vlastos and the work was co-ordinated by the
Secretariat of the Research Centre. The report was subject to expert review before publication.
The report was formally approved by the Joint Transport Research Committee at its April 2011
session.

The Secretariat is very appreciative of all the time and effort the contributors dedicated to this
report.

Members of the Working Group

Chair: Mr. Thanos Vlastos

Australia Mr. Bruce Corben

Monash University
Austria Mr. Thomas Fessl
Kuratorium für Verkehrssicherheit (KfV)
Belgium Ms. Isabelle Janssens
Institut Belge pour la Sécurité Routière (IBSR)
Canada Mr. Paul Boase
Transport Canada
Mr. Daniel Lafontaine
Transport Canada
Ms. Sarah Peddie
Transport Canada
Czech Republic Mr. Karel Schmeidler
Transport Research Centre (CDV)
Finland Mr. Eero Pasanen
Helsinki City

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France Ms. Marie-Axelle Granié

IFSTTAR
Mr. Samuel Martin
CERTU
Mr. Frédéric Murard
CERTU
Ms. Catia Rennesson
CETE, Lyon
Germany Ms. Sabine Degener
Gesamtverband der Deutschen Versicherungswirtschaft e.V.
Mr. Joerg Ortlepp
Gesamtverband der Deutschen Versicherungswirtschaft e.V.
Greece Ms. Eleonora Papadimitriou
Technical University of Athens
Mr. Thanos Vlastos
Technical University of Athens
Italy Mr. Maurizio Tira
University of Brescia
Latvia Mr. Alvis Pukitis
Ministry of Transport
The Netherlands Mr. Rob Methorst
Rijkswaterstaat

New Zealand Mr. Tim Hughes

Transport Agency

Norway Ms. Guro Berge

Public Roads Administration

Poland Mr. Jacek Malasek

Road and Bridge Research Institute

Spain Mr. Francisco Lamíquiz

Escuela de arquitectura, Madrid

Ms. Candelaria Medeiros

Dirección General de Tráfico

Ms. Catherine Perez

Agència de Salut Pública de Barcelona
Mr. Julio Pozueta
Escuela de arquitectura, Madrid

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United Kingdom Ms. Louise Taylor

Department for Transport

United States Mr. Gabe Rousseau

Federal Highway Administration

World Health Ms. Sonja Kahlmeier

Organisation
Mr. Dinesh Sehti

International Mr. Ole Thorson

Federation of
Pedestrians
ITF/OECD Mr. Philippe Crist
Secretariat Ms. Véronique Feypell-de La Beaumelle
Mr. Stephen Perkins

Members of the Editorial Committee:

Guro Berge (Norway), Bruce Corben (Australia), Véronique Feypell (ITF/OECD), Marie-Axelle
Granié (France), Isabelle Janssens (Belgium), Francisco Lamíquiz (Spain), Rob Methorst (the
Netherlands), Frédéric Murard (France), Julio Pozueta (Spain), Catia Rennesson (France), Ole
Thorson (International Federation of Pedestrians), Maurizio Tira (Italy) and Thanos Vlastos
(Greece).

Peer Reviewer

Mr. Richard Allsop, University College London.

Other contributors

Sara Liu (Monash University), Anna Devlin (Monash University)

PEDESTRIAN SAFETY, URBAN SPACE AND HEALTH © OECD/ITF 2011

Pedestrian Safety, Urban Space
and Health
Walking is the most natural form of mobility; however cities have
not always evolved to accommodate the needs of pedestrians and
walking has in many cases been neglected in the development
of transport systems. Improving the pedestrian environment
can contribute significantly to meeting the challenges of climate
change, air pollution and health.
This report aims to present decision-makers with hard evidence
on the important place of walking in transport policies and provide
guidelines for developing a safe environment conducive to walking.
This is an essential contribution to creating liveable cities.
Every single trip begins and ends by walking.

International Transport Forum

2 rue André Pascal
75775 Paris Cedex 16
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