Vision Zero Action Plan (VZAP)

VISION ZERO ACTION PLAN – TEXT VERSION (FULL, ADA-FRIENDLY)

CITY OF JACKSONVILLE
VISION ZERO ACTION PLAN
FINAL – JULY 2025

PHOTO SOURCES: CITY OF JACKSONVILLE

A MESSAGE FROM THE MAYOR

Dear Friends,

It’s with great pride that the City of Jacksonville is introducing this Vision Zero Action Plan—a bold and necessary step toward a safer, more connected future for every resident who travels our roadways. This action plan is not merely a policy document—it is a life-saving commitment, aligning with our administration’s core priorities of infrastructure, public safety, and health.

Our goal to eliminate all traffic fatalities and reduce serious injuries by 50% by 2035 is a reflection of our values and our belief that every resident deserves to move safely through this City, regardless of how they travel.

Jacksonville is ranked among the most dangerous U.S. cities for pedestrians. Between 2018 and 2023, there were nearly 200,000 crashes, with 921 fatalities and 2,770 serious injuries. Vulnerable road users like bicyclists, pedestrians, and motorcyclists continue to face disproportionate risk. These are not just statistics—they are our neighbors, friends, and loved ones. We must act with urgency and resolve.

The Vision Zero Action Plan prioritizes safety and smart investments. Guided by a Safe System Approach, the plan reflects the input of over 50 task force members, 80 recommended strategies, and extensive community engagement. It identifies a High Injury Network—the corridors and intersections where the most severe crashes occur—and recommends capital investments and projects in those areas for maximum impact.

These investments are designed to reduce crashes through infrastructure upgrades, better lighting, safer street designs, and multimodal enhancements.

I am grateful for the dedication of the City’s transportation professionals, community stakeholders, and national partners who have contributed to this plan. Let this be the decade of transformation for our City. Let’s move forward—safely and boldly.

Sincerely,
Donna Deegan
Mayor, City of Jacksonville

TEXT-ONLY VERSION – TABLE OF CONTENTS

1. A Message from the Mayor

2. In Memoriam

3. Vision Zero Goal

4. Implementation & Accountability

1. Vision Zero

1.1 Executive Summary
1.2 What is Vision Zero
1.3 Getting to Zero

2. Jacksonville Today

2.1 Citywide Crash Trends
2.2 Existing Plans
2.3 Prior & Ongoing Safety Efforts
2.4 Collaboration with JTA

3. Voices of Jacksonville

3.1 Developing the Action Plan
3.2 Vision Zero Task Force & Stakeholder Group
3.3 Community Engagement & Outreach
3.4 World Day of Remembrance
3.5 Stories

4. High Injury Network

5. Action Plan Strategies

5.1 Safe System Approach
5.2 Themes & Safety Problems
5.3 Strategies and Actions
5.4 Measuring Progress

6. Vision Zero Projects

6.1 Capital Projects
6.2 Demonstration Projects

7. Acknowledgments

8. Appendices

Appendix A – Local Road HIN
Appendix B – State Road HIN
Appendix C – Safety Problems Long-List
Appendix D – Strategies and Actions
Appendix E – Capital Projects
Appendix F – Demonstration Projects

IN MEMORIAM

EVEN ONE IS TOO MANY.

Every traffic-related death is a tragic loss—one that cuts a life short, devastates loved ones, and impacts the entire community. Countless others have survived severe traffic injuries, often facing life-altering consequences.

This Action Plan is dedicated to those who have lost their lives while traveling on City of Jacksonville streets.

VISION ZERO GOAL

THE VISION ZERO ACTION PLAN IS THE FIRST STEP TOWARDS ELIMINATING ALL TRAFFIC FATALITIES AND REDUCING SERIOUS INJURIES BY 50% BY 2035

GOAL:

• Eliminate all traffic fatalities

• Reduce serious injuries by 50%

• Target year: 2035

IMPLEMENTATION & ACCOUNTABILITY

This Vision Zero Action Plan represents the beginning of an ongoing commitment. The City will move forward with implementation, monitoring, and accountability to ensure measurable progress toward safer streets.

1. VISION ZERO

1.1 ACTION PLAN EXECUTIVE SUMMARY

Nationally, more than 42,000 people are killed in traffic crashes every year, and thousands more are injured. These are not just statistics—they represent lives lost and families forever changed.

In Jacksonville alone, there were approximately 145 crash-related deaths in 2024.

The City of Jacksonville experiences a disproportionate impact of fatal and serious injury traffic crashes on vulnerable road users:

• Bicyclists: 80% higher injury rate

• Pedestrians: 77% higher injury rate

• Motorcyclists: 77% higher injury rate

• Vehicle occupants: 26%

These disparities underscore the urgent need to prioritize those most at risk.

HIGH INJURY NETWORK OVERVIEW

The most severe crashes are concentrated along specific corridors and intersections. To address this, the City mapped and analyzed fatal and serious injury crashes across all modes:

• Pedestrian

• Bicycle

• Motorcycle

• Vehicle

These were combined to create a High Injury Network (HIN) that will guide all strategies in the Vision Zero Action Plan.

DEMONSTRATION PROJECTS

An important step toward implementation is advancing demonstration (quick-build) projects along the HIN.

These projects:

• Can be delivered quickly

• Are cost-effective

• Provide real-world testing of safety improvements

An initial set of 25 demonstration projects has been identified.

CAPITAL PROJECTS

A key component of the VZAP is strategic investment in capital projects aligned with the HIN.

These projects focus on:

• Roadway redesign

• Speed management

• Multimodal safety improvements

ACTION PLAN STRATEGIES

Themes organize safety challenges and strategies into focused areas of action. A long list of safety problems was developed and refined through stakeholder input, resulting in a recommended strategy list.

DATA SOURCES

1. U.S. Department of Transportation – National Roadway Safety Strategy

2. FDOT Signal Four Analytics

1.2 WHAT IS VISION ZERO

Vision Zero originated in Sweden in the 1990s based on the principle that traffic deaths are preventable.

It focuses on designing roadway systems that:

• Anticipate human error

• Reduce crash severity

• Protect all users

Jacksonville aligns with:

• FDOT Target Zero

• National roadway safety initiatives

1.3 GETTING TO ZERO

Jacksonville will implement the Safe System Approach, focusing on:

• Safer People

• Safer Roads

• Safer Vehicles

• Safer Speeds

• Better Post-Crash Care

The 4 E’s:

• Engineering

• Education

• Enforcement

• Emergency Response

These work together to create a proactive, comprehensive safety system.

2. JACKSONVILLE TODAY

Motor vehicle fatalities remain one of the leading causes of death in the United States. The National Highway Traffic Safety Administration (NHTSA) estimates that 40,990 people died in traffic crashes in the United States in 2023. These incidents have a lasting impact not only on the victims and their families but also on the surrounding community.

The Florida Department of Transportation (FDOT) estimates that the total cost to society for each crash is approximately $10.9 million. These impacts underscore the urgency of improving roadway safety across Jacksonville.

2.1 CITYWIDE CRASH TRENDS

Fatal and serious injury crashes have affected Jacksonville for years. To effectively address these safety issues, it is critical to understand where and why crashes are occurring.

The City analyzed five years of crash data from 2018 to 2023:

• Total crashes: 196,453

• Fatal and serious injury crashes: 3,691

• Fatalities: 921

• Serious injuries: 2,770

Most concerning, 34% of fatal and serious injury crashes involved vulnerable road users, including pedestrians, bicyclists, and motorcyclists.

THE DANGERS OF WALKING OR RIDING A BICYCLE

Although fewer people choose to walk or bike compared to driving, those who do face disproportionately high risks.

Pedestrian safety is a significant concern nationwide, with more than 20 pedestrians killed on average every day in the United States. However, individuals who walk in Jacksonville face even greater risks.

• In 2022, Jacksonville ranked as the 6th most dangerous metropolitan area for pedestrians according to Smart Growth America’s Dangerous by Design report.

• By 2024, the City improved to 15th most dangerous, reflecting progress but still highlighting ongoing risk.

Between 2018 and 2023:

• 441 fatal and serious injury crashes involved pedestrians

• 211 pedestrian fatalities occurred

Each of these represents a life lost and a family forever changed.

Bicyclist safety is also a major concern:

• 148 fatal and serious injury crashes involved bicyclists

Jacksonville remains one of the more dangerous cities in the United States for cyclists.

UNDERSTANDING CRASH FACTORS – PEDESTRIANS & BICYCLISTS

Crash data reveals several recurring contributing factors:

• Intersection design challenges

  • 44% of fatal and serious injury bicycle crashes occurred at intersections

• Poor lighting and nighttime visibility

  • 60% of pedestrian fatal and serious injury crashes occurred at night

• Infrastructure gaps

  • Missing sidewalks

  • Limited bicycle facilities

  • Inconsistent crossing treatments

These findings highlight the need for a comprehensive, system-wide approach to improving safety for vulnerable road users.

UNDERSTANDING CRASH FACTORS – VEHICLES & MOTORCYCLES

Additional key contributing factors were identified for vehicle and motorcycle crashes:

• Lack of occupant protection

  • 24% of fatal and serious injury vehicle crashes involved individuals not using seat belts or proper restraints

• High speeds and aggressive driving

  • 20% of fatal and serious injury motorcycle crashes involved speeding or aggressive driving

• Impaired driving

  • 54% of fatal vehicle crashes involved drugs or alcohol

  • 62% of fatal motorcycle crashes involved impairment

These factors significantly increase crash severity and highlight the importance of speed management, enforcement, and education.

CRASH DISTRIBUTION (SUMMARY)

Fatal and serious injury crash totals (2018–2023):

• Pedestrian: 441

• Bicycle: 148

• Vehicle: 1,568

• Motorcycle: 409

Crash density analysis shows that severe crashes are concentrated in specific areas of the City, reinforcing the importance of targeted interventions.

2.2 EXISTING PLANS

The Vision Zero Action Plan builds upon and aligns with several existing planning efforts and programs already underway in Jacksonville.

Pedestrian and Bicycle Master Plan (2017)

Developed to create a prioritized network of bicycle and pedestrian facilities, this plan focuses on expanding safe, comfortable, and connected routes for users of all ages and abilities.

Capital Improvement Program (CIP)

The CIP identifies and funds infrastructure projects across the City, including transportation improvements. It serves as a key mechanism for implementing safety-focused capital investments.

North Florida Transportation Planning Organization (TPO)

The City partners with the North Florida TPO on regional transportation planning efforts, including:

• Transportation Improvement Program (TIP)

  • A five-year program of transportation projects

  • Includes roadway, transit, aviation, seaport, bicycle, and pedestrian projects

• Long-Range Transportation Plan (2045)

• Congestion management planning

• Public engagement and project prioritization

Corridor and Traffic Studies

The City has completed numerous corridor and traffic studies to identify safety and mobility improvements, including:

• Moncrief Road Corridor Study (2024)

• Sunbeam Road Corridor Study (2024)

• Rogero Road Corridor Study (2023)

• Myrtle Avenue Corridor Study (2022)

• 8th Street Corridor Study (2022)

• Hodges Boulevard Traffic Study (2021)

• Parental Home Road Corridor Study (2021)

• Chaffee Road Corridor Study (2020)

• Monument Road Traffic Study (2020)

These studies provide detailed recommendations that support Vision Zero implementation.

2.3 PRIOR & ONGOING SAFETY EFFORTS

Jacksonville has undertaken a wide range of initiatives to improve roadway safety through innovation, partnerships, and community engagement.

20 is Plenty Program

Speeding and aggressive driving were identified as primary contributors to crashes on residential streets.

The 20 is Plenty initiative:

• Reduces residential speed limits from 30 mph to 20 mph

• Improves safety for pedestrians and bicyclists

• Aligns with Vision Zero principles

• Uses data and community feedback to guide implementation

Smart Surfaces Initiative

This program focuses on:

• Improving roadway traction

• Enhancing visibility

• Using innovative materials

Particularly in high-crash locations, Smart Surfaces help reduce crash risk and severity.

Better Jacksonville Plan

A $2.25 billion comprehensive program that includes:

• Roadway and infrastructure improvements

• Environmental preservation

• Economic development

• Public facility enhancements

This program supports broader safety and mobility goals.

Targeted Community Focus

Efforts prioritize high-risk corridors and communities, including:

• Blue Zones neighborhoods

• Areas with elevated crash rates

Key Lessons Learned

• Data-driven approaches are critical

• Public engagement improves outcomes

• Partnerships accelerate implementation

Challenges include:

• Funding limitations

• Enforcement consistency

• Resistance to change

Despite these challenges, continued collaboration has helped advance safety goals.

2.4 COLLABORATION WITH JACKSONVILLE TRANSPORTATION AUTHORITY (JTA)

The City of Jacksonville works closely with the Jacksonville Transportation Authority (JTA) and other regional partners to advance roadway safety.

Creating Safe Spaces Action Plan (CSSAP)

JTA’s safety plan focuses on:

• Data-driven analysis

• Community engagement

• Strategic implementation

Key principles:

• Safety is embedded at all levels of the organization

• Crash data informs decision-making

• Stakeholder collaboration is essential

FDOT Target Zero Initiative

Jacksonville collaborates with FDOT to:

• Eliminate traffic fatalities statewide

• Integrate engineering, enforcement, and education strategies

Regional Partnerships

The City also works with:

• North Florida TPO

• Community organizations

• Advocacy groups

These partnerships support initiatives such as:

• Pedestrian safety campaigns

• Data sharing

• Coordinated planning

Ongoing Collaboration

The City of Jacksonville and JTA worked closely together in developing their respective action plans and will continue to collaborate in implementing strategies to achieve Vision Zero goals.

3. VOICES OF JACKSONVILLE

3.1 DEVELOPING THE ACTION PLAN

The City of Jacksonville’s Vision Zero Action Plan (VZAP) was developed through a structured, collaborative, and data-driven process.

The effort began in February 2023 when the City secured approximately $350,000 in funding, including federal support matched with local contributions. This funding enabled a comprehensive planning effort focused on improving roadway safety across Jacksonville.

Throughout development, the City prioritized:

• Interagency coordination

• Community engagement

• Data-driven decision-making

Stakeholders included:

• City departments

• Regional and state agencies

• Community organizations

• Residents

• Transportation professionals

These stakeholders participated in:

• Task force meetings

• Public workshops

• Surveys

• Ongoing coordination efforts

KEY MILESTONES

The development of the VZAP followed a clear timeline:

• February 2023
  Project initiation and funding secured

• August 2024
  Completion of:

  • Comprehensive crash analysis

  • High Injury Network (HIN) identification

• September 2024
  Award of approximately $1.27 million in federal funding for safety demonstration projects

• February 2025
  Selection of:

  • Demonstration projects

  • Initial implementation priorities

• March 2025
  Development of:

  • Performance measures

  • Tracking framework

• Summer 2025
  Finalization and adoption of the Vision Zero Action Plan

This process ensured that the plan is grounded in both data and community input, while aligning with regional safety initiatives such as the Jacksonville Transportation Authority’s Creating Safe Spaces Action Plan (CSSAP).

3.2 VISION ZERO TASK FORCE & STAKEHOLDER GROUP

A multidisciplinary Vision Zero Task Force and Stakeholder Group was established to guide the development of the VZAP.

Composition

The group included over 50 members representing:

• City of Jacksonville departments

• Regional agencies

• State partners (including FDOT)

• Jacksonville Transportation Authority (JTA)

• Advocacy organizations

• Community stakeholders

Role of the Task Force

The Task Force played a critical role in shaping the plan by:

• Reviewing crash data and safety trends

• Identifying key safety issues

• Prioritizing themes and strategies

• Providing feedback on proposed actions

The group met multiple times throughout the planning process to:

• Discuss findings

• Share expertise

• Generate ideas

• Refine recommendations

Outcome

The collaborative nature of the Task Force ensured that:

• The plan reflects diverse perspectives

• Strategies are practical and implementable

• Community needs are integrated into decision-making

3.3 COMMUNITY ENGAGEMENT & OUTREACH

Public engagement was a central component of the VZAP development process.

The City actively engaged residents to:

• Understand real-world safety challenges

• Gather input on priorities

• Build support for Vision Zero initiatives

Community feedback consistently emphasized a strong desire for safer streets and a willingness to support policy changes that reduce roadway deaths and serious injuries.

ENGAGEMENT METHODS

1. Vision Zero Website

The City developed a Vision Zero website to:

• Provide background information

• Share data and analysis

• Host surveys

• Offer updates on plan development

The website also includes:

• A public-facing dashboard

• Ongoing crash data monitoring

• Implementation tracking tools

2. Online Surveys

Two online surveys were conducted.

First Survey (October 2024 – January 2025)

• Collected 16 responses

• Identified key safety concerns

Top priorities included:

• Safer roadway design

• Pedestrian and bicyclist safety

• School zone improvements

Common concerns:

• Speeding vehicles

• Poor street lighting

• Dangerous intersections

Second Survey (February 2025 – May 2025)

• Collected 14 responses

• Focused on proposed strategies and projects

Top priorities included:

• Safer street design

• Sidewalk connectivity

• Safer intersections

Respondents emphasized the importance of:

• Demonstration projects

• Capital investments

• Visible safety improvements

3. Public Workshops

Two public workshops were held to:

• Share plan updates

• Present findings

• Gather community input

These workshops provided a platform for residents to:

• Share personal experiences

• Identify safety concerns

• Provide feedback on proposed strategies

The input received directly influenced:

• Strategy development

• Project selection

• Overall plan direction

COMMUNITY PERSPECTIVE SUMMARY

Public engagement revealed that residents:

• Strongly support Vision Zero goals

• See themselves as advocates for safer streets

• Prioritize pedestrian and bicyclist safety

• Want improvements in school zones

• Identify lighting, speeding, and intersections as key issues

This feedback reinforced the need for collective action and community partnership in achieving Vision Zero.

3.4 WORLD DAY OF REMEMBRANCE

The City of Jacksonville participates annually in the World Day of Remembrance for Road Traffic Victims, held on the third Sunday of November.

This global event provides an opportunity to:

• Honor victims of traffic crashes

• Support grieving families

• Raise awareness about roadway safety

COMMUNITY IMPACT

The event brings together:

• Survivors

• Families of victims

• Community members

• Safety advocates

Participants share personal stories that:

• Humanize crash data

• Highlight the real impact of traffic violence

• Strengthen the City’s commitment to safety

2024 EVENT

At the 2024 event:

• 508 white flags were displayed

  • Representing lives lost over the past three years

Mayor Donna Deegan reaffirmed the City’s commitment, stating:

“The loss of your loved ones is made even more tragic by the fact that most roadway injuries and deaths are preventable. Roadway safety requires us to be proactive.”

The event also marked a major milestone:

• Announcement of Jacksonville’s first Vision Zero Action Plan

3.5 STORIES

Personal stories underscore the human impact of traffic crashes and reinforce the urgency of Vision Zero efforts.

ALLISON HARAMIS

Allison Haramis was killed in a car crash in 2009 at the age of 15 while on her way home from school.

Her father, Drew Haramis, remembers her as:

• Fun

• Loving

• Hard-working

• Passionate about dancing

He describes her as having:

• The best laugh

• A beautiful smile

In her honor, Drew founded Angels for Allison, an organization dedicated to keeping her memory alive and advocating for safety.

ALONDRA MARTINEZ

Alondra Martinez was killed in January 2024 at the age of 16 after being struck by a car near her bus stop.

The crash occurred near:

• Old Kings Road

• Habana Avenue

Residents had long expressed concerns about safety at this intersection.

Alondra was:

• A dedicated student

• Attended Atlantic Coast High School

• Remembered for her impact on those around her

Her family continues to advocate for safety improvements to prevent similar tragedies.

PURPOSE OF STORIES

These stories:

• Put faces to statistics

• Highlight preventable loss

• Reinforce the urgency of action

They serve as a reminder that:

Every crash represents a life, a family, and a community impacted.

4. HIGH INJURY NETWORK

The most severe crashes in Jacksonville are not evenly distributed across the roadway system. Instead, they are concentrated along specific corridors and at particular intersections. To effectively reduce fatalities and serious injuries, it is critical to focus safety efforts where they are needed most.

To support this effort, the City conducted a comprehensive analysis of fatal and serious injury crashes across all travel modes:

• Pedestrians

• Bicyclists

• Motorcyclists

• Motor vehicle occupants

Using this data, high-crash corridors and intersections were identified and combined to create the High Injury Network (HIN).

PURPOSE OF THE HIGH INJURY NETWORK

The High Injury Network serves as the foundation for the Vision Zero Action Plan by:

• Identifying where the most severe crashes occur

• Prioritizing safety investments in those locations

• Guiding project selection and implementation

• Supporting data-driven decision-making

By focusing on the HIN, Jacksonville can maximize the impact of safety improvements and efficiently allocate resources to areas with the greatest need.

HIN DEVELOPMENT

The HIN was developed by mapping and analyzing crash data from 2018 to 2023, focusing specifically on fatal and serious injury crashes.

The analysis included:

• Crash locations

• Crash severity

• Contributing factors

• Mode-specific patterns

This approach ensures that the HIN reflects real-world conditions and accurately identifies high-risk areas.

NETWORK STRUCTURE

To better understand and address safety issues, the HIN is divided into multiple categories based on roadway type and crash characteristics.

SEGMENT-BASED HIN

Roadway segments were categorized into:

• State Roads (excluding limited access facilities)

• Local Roads

Segment-based analysis identifies corridors where crashes are concentrated along a stretch of roadway.

INTERSECTION-BASED HIN

Intersections were categorized into:

• State roads intersecting with state roads

• State roads intersecting with local roads

• Local roads intersecting with local roads

Intersection-based analysis identifies locations where conflicts between users are most likely to occur.

MODE-SPECIFIC HIN

The HIN was further refined by mode to better target safety improvements:

• Pedestrian High Injury Network

• Bicycle High Injury Network

• Vehicle High Injury Network

• Motorcycle High Injury Network

Each mode-specific HIN highlights unique risk patterns and informs tailored safety strategies.

LOCAL AND STATE HIN

The HIN is separated into two primary systems:

Local Road High Injury Network

• Managed by the City of Jacksonville

• Focus of local safety investments

• Detailed in Appendix A

State Road High Injury Network

• Managed by the Florida Department of Transportation (FDOT)

• Requires coordination with state partners

• Detailed in Appendix B

HIN MAPPING AND DATA

The Vision Zero Action Plan includes detailed maps illustrating:

• High-risk corridors

• High-risk intersections

• Mode-specific crash concentrations

These maps visually demonstrate that:

• A relatively small portion of the roadway network accounts for a large share of fatal and serious injury crashes

• Certain corridors consistently appear across multiple modes

KEY TAKEAWAYS

The High Injury Network analysis reveals several important insights:

• Severe crashes are concentrated in specific geographic areas

• Many high-risk locations serve multiple travel modes

• Intersections are particularly critical locations for safety improvements

• State and local coordination is essential for addressing the full network

ROLE OF THE HIN IN IMPLEMENTATION

The High Injury Network is not just an analytical tool—it is central to implementation.

The City will use the HIN to:

• Prioritize capital projects

• Select demonstration projects

• Guide funding decisions

• Coordinate with FDOT and regional partners

• Track progress over time

All major Vision Zero investments will be aligned with the HIN to ensure maximum safety impact.

CONNECTION TO APPENDICES

Additional details on the High Injury Network can be found in:

• Appendix A – Local Road High Injury Network

• Appendix B – State Road High Injury Network

These appendices include:

• Detailed roadway listings

• Segment extents

• Planning districts

• Council districts

• Mode-specific HIN classifications

SUMMARY

The High Injury Network provides a clear, data-driven framework for identifying where safety improvements are most needed.

By focusing on these high-risk locations, Jacksonville can:

• Reduce fatalities and serious injuries more effectively

• Improve safety for all road users

• Advance the Vision Zero goal of eliminating traffic deaths

5. ACTION PLAN STRATEGIES

5.1 A SAFE SYSTEM APPROACH

The Safe System Approach is the foundation for Jacksonville’s Vision Zero Action Plan. This framework recognizes that while human error is inevitable, traffic fatalities and serious injuries are preventable through thoughtful system design.

The Safe System Approach focuses on:

• Anticipating human mistakes

• Reducing the likelihood of crashes

• Minimizing the severity of crashes when they occur

The goal is to create a transportation system that is:

• Forgiving

• Redundant

• Safe for all users

CORE PRINCIPLES

Jacksonville’s approach is guided by the following principles:

• Human life and health are prioritized above all else

• Humans make mistakes, and the system should accommodate those mistakes

• Human bodies have limited tolerance to crash forces

• Responsibility for safety is shared among all stakeholders

• Safety is proactive, not reactive

COMMITMENT TO DESIGN

As a member of the National Association of City Transportation Officials (NACTO), Jacksonville is committed to:

• Implementing innovative street design practices

• Prioritizing vulnerable road users

• Designing safer, more equitable transportation systems

EQUITY AND COMMUNITY FOCUS

The City recognizes that:

• Historically underserved communities often experience higher crash rates

• Safety improvements must address these disparities

By engaging with local organizations and residents, Jacksonville ensures that:

• Safety investments reflect community needs

• Resources are directed where they are most needed

5.2 THEMES & SAFETY PROBLEMS

To organize safety challenges and solutions, the VZAP groups issues into overarching themes. Each theme represents a key area of focus, while associated safety problems identify specific risks contributing to fatal and serious injury crashes.

These themes provide a structured, coordinated approach to improving safety.

PRIMARY THEMES

The Vision Zero Action Plan identifies the following key themes:

• Design Safer Streets

• Protecting Pedestrians

• Cycling with Confidence

• Nighttime Visibility for Safety

• Promote a Culture of Safety

• Data-Driven Decisions & Transparency

PRIORITIZATION PROCESS

During Task Force and Stakeholder meetings, participants reviewed safety data and voted on priority themes and safety problems.

Results showed strong support for:

• Designing safer streets

• Promoting a culture of safety

• Protecting pedestrians

These priorities informed the development of targeted strategies and actions.

ROLE OF SAFETY PROBLEMS

Safety problems identify specific contributing factors, such as:

• Speeding

• Poor lighting

• Unsafe intersection design

• Lack of pedestrian infrastructure

By clearly defining these issues, the plan establishes a foundation for targeted, data-driven interventions.

5.3 RECOMMENDED THEMES, SAFETY PROBLEMS, STRATEGIES, & ACTIONS

The Vision Zero Task Force identified and prioritized the most critical safety problems facing Jacksonville.

For each priority safety problem:

• Strategies define the overall approach

• Actions translate strategies into specific, implementable steps

Each action includes:

• Timeline

• Lead agency

• Transportation mode

• Alignment with the Safe System Approach

• Alignment with the 4 E’s (Engineering, Education, Enforcement, Emergency Response)

• Estimated cost level

• Performance tracking mechanism

A complete list of strategies and actions is provided in Appendix D.

KEY SAFETY PROBLEMS AND STRATEGIES

SPEEDING AND AGGRESSIVE DRIVING

Speed is one of the most significant factors in crash severity. Higher speeds increase both:

• The likelihood of a crash

• The severity of injuries

In Jacksonville:

• 94 fatalities and 206 serious injuries were attributed to speeding and aggressive driving

• 20% of motorcycle fatal and serious injury crashes involved speeding

STRATEGIES FOR SPEED MANAGEMENT

• Redesign roadways to naturally calm traffic

• Narrow travel lanes

• Install raised crosswalks and traffic calming features

• Lower speed limits in high-risk areas

• Increase enforcement and public awareness

PROVEN SAFETY COUNTERMEASURES

• Appropriate speed limits can reduce traffic fatalities by up to 26%

• Road diets (4-lane to 3-lane conversions) can reduce crashes by 19–47%

• Road Safety Audits can reduce total crashes by 10–60%

SAFER STREET DESIGN

Roadway design plays a critical role in shaping driver behavior and overall safety.

Issues include:

• Wide travel lanes

• Limited pedestrian refuge areas

• Poor intersection design

These conditions contribute to:

• Speeding

• Failure to yield

• Increased crash severity

STRATEGIES FOR STREET DESIGN

• Implement Complete Streets principles

• Design compact intersections

• Add pedestrian refuge islands

• Improve crossing visibility

• Reduce lane widths where appropriate

COMPLETE STREETS

Complete Streets are designed to safely accommodate:

• Pedestrians

• Bicyclists

• Transit users

• Motorists

They ensure safe access for users of all ages and abilities.

PEDESTRIAN SAFETY

Pedestrians are among the most vulnerable road users.

Key issues include:

• Poor lighting

• Inadequate crossings

• Limited visibility

STRATEGIES FOR PEDESTRIAN SAFETY

• Install high-visibility crosswalks

• Improve street lighting

• Add curb extensions

• Enhance signage and markings

PROVEN COUNTERMEASURES

• High-visibility crosswalks can reduce pedestrian injury crashes by up to 40%

SIDEWALK CONNECTIVITY

Many areas in Jacksonville lack continuous sidewalks, forcing pedestrians into unsafe conditions.

This disproportionately impacts:

• Children

• Older adults

• People with disabilities

STRATEGIES FOR SIDEWALKS

• Expand sidewalk networks

• Close gaps in existing infrastructure

• Maintain and repair existing sidewalks

PROVEN COUNTERMEASURES

• Sidewalks can reduce pedestrian crashes by 65–89%

SCHOOL ZONE SAFETY

Children traveling to school face elevated risks due to:

• High vehicle speeds

• Inconsistent school zone treatments

• Poor crossing conditions

STRATEGIES FOR SCHOOL ZONES

• Lower speed limits

• Improve signage and markings

• Implement Safe Routes to School programs

• Enhance enforcement

PROVEN COUNTERMEASURES

• Speed safety cameras can reduce fatalities and injuries by 20–37%

• Significant reductions in speeding and violations have been observed

INTERSECTION SAFETY

Intersections are high-risk locations, particularly at night.

Challenges include:

• Poor lighting

• Inadequate markings

• Visibility issues

STRATEGIES FOR INTERSECTIONS

• Install LED lighting

• Improve signal visibility

• Use reflective signage

• Add illuminated pavement markings

PROVEN COUNTERMEASURES

• Improved intersection lighting can reduce nighttime crashes by approximately 12%

NIGHTTIME VISIBILITY

A disproportionate number of fatal and serious injury crashes occur at night due to low visibility.

• 60% of pedestrian and bicycle fatal and serious injury crashes occur at night

STRATEGIES FOR VISIBILITY

• Increase street lighting

• Install reflective materials and signage

• Improve crosswalk illumination

BICYCLE SAFETY

Bicyclists face significant risks when sharing roadways with motor vehicles.

Key issues:

• Lack of dedicated infrastructure

• High vehicle speeds

• Driver awareness

STRATEGIES FOR BICYCLE SAFETY

• Expand protected bike lanes

• Improve roadway markings

• Install secure bicycle parking

• Increase education and awareness

PROVEN COUNTERMEASURES

• Bicycle lanes can reduce crashes by up to 30–49%

• Separated bike lanes can reduce crashes by up to 53%

FUNDING AND IMPLEMENTATION

Sustained funding is essential for implementing Vision Zero strategies.

Challenges include:

• Competing priorities

• Limited funding sources

STRATEGIES FOR FUNDING

• Secure federal and state grants

• Prioritize safety in transportation budgets

• Leverage public-private partnerships

CURRENT FUNDING EXAMPLES

• $1.27 million awarded for demonstration projects

• FDOT allocated approximately $156 million in Highway Safety Improvement Program (HSIP) funds

• Over $130 million invested statewide in Safe Routes to School programs

5.4 MEASURING PROGRESS

Achieving Vision Zero requires ongoing evaluation and transparency.

The City will track progress using:

• Crash data

• Project implementation metrics

• Performance indicators

PUBLIC DASHBOARDS

Two dashboards provide public access to data:

• Safety Data Dashboard

  • Tracks fatalities and serious injuries

  • Provides HIN data and trends

• Demonstration & Capital Projects Dashboard

  • Tracks project implementation

  • Shows investment impacts

ACCOUNTABILITY

The City will:

• Conduct regular evaluations

• Provide annual updates

• Adjust strategies based on data

This ensures that Vision Zero remains:

• Dynamic

• Data-driven

• Results-oriented

SUMMARY

The Action Plan Strategies provide a comprehensive framework for improving roadway safety through:

• Data-driven analysis

• Proven safety countermeasures

• Community-informed priorities

• Coordinated implementation

By addressing the root causes of crashes and focusing on high-risk locations, Jacksonville is positioned to make meaningful progress toward eliminating traffic fatalities and reducing serious injuries.

5. ACTION PLAN STRATEGIES

5.1 A SAFE SYSTEM APPROACH

The Safe System Approach is the foundation for Jacksonville’s Vision Zero Action Plan. This framework recognizes that while human error is inevitable, traffic fatalities and serious injuries are preventable through thoughtful system design.

The Safe System Approach focuses on:

• Anticipating human mistakes

• Reducing the likelihood of crashes

• Minimizing the severity of crashes when they occur

The goal is to create a transportation system that is:

• Forgiving

• Redundant

• Safe for all users

CORE PRINCIPLES

Jacksonville’s approach is guided by the following principles:

• Human life and health are prioritized above all else

• Humans make mistakes, and the system should accommodate those mistakes

• Human bodies have limited tolerance to crash forces

• Responsibility for safety is shared among all stakeholders

• Safety is proactive, not reactive

COMMITMENT TO DESIGN

As a member of the National Association of City Transportation Officials (NACTO), Jacksonville is committed to:

• Implementing innovative street design practices

• Prioritizing vulnerable road users

• Designing safer, more equitable transportation systems

EQUITY AND COMMUNITY FOCUS

The City recognizes that:

• Historically underserved communities often experience higher crash rates

• Safety improvements must address these disparities

By engaging with local organizations and residents, Jacksonville ensures that:

• Safety investments reflect community needs

• Resources are directed where they are most needed

5.2 THEMES & SAFETY PROBLEMS

To organize safety challenges and solutions, the VZAP groups issues into overarching themes. Each theme represents a key area of focus, while associated safety problems identify specific risks contributing to fatal and serious injury crashes.

These themes provide a structured, coordinated approach to improving safety.

PRIMARY THEMES

The Vision Zero Action Plan identifies the following key themes:

• Design Safer Streets

• Protecting Pedestrians

• Cycling with Confidence

• Nighttime Visibility for Safety

• Promote a Culture of Safety

• Data-Driven Decisions & Transparency

PRIORITIZATION PROCESS

During Task Force and Stakeholder meetings, participants reviewed safety data and voted on priority themes and safety problems.

Results showed strong support for:

• Designing safer streets

• Promoting a culture of safety

• Protecting pedestrians

These priorities informed the development of targeted strategies and actions.

ROLE OF SAFETY PROBLEMS

Safety problems identify specific contributing factors, such as:

• Speeding

• Poor lighting

• Unsafe intersection design

• Lack of pedestrian infrastructure

By clearly defining these issues, the plan establishes a foundation for targeted, data-driven interventions.

5.3 RECOMMENDED THEMES, SAFETY PROBLEMS, STRATEGIES, & ACTIONS

The Vision Zero Task Force identified and prioritized the most critical safety problems facing Jacksonville.

For each priority safety problem:

• Strategies define the overall approach

• Actions translate strategies into specific, implementable steps

Each action includes:

• Timeline

• Lead agency

• Transportation mode

• Alignment with the Safe System Approach

• Alignment with the 4 E’s (Engineering, Education, Enforcement, Emergency Response)

• Estimated cost level

• Performance tracking mechanism

A complete list of strategies and actions is provided in Appendix D.

KEY SAFETY PROBLEMS AND STRATEGIES

SPEEDING AND AGGRESSIVE DRIVING

Speed is one of the most significant factors in crash severity. Higher speeds increase both:

• The likelihood of a crash

• The severity of injuries

In Jacksonville:

• 94 fatalities and 206 serious injuries were attributed to speeding and aggressive driving

• 20% of motorcycle fatal and serious injury crashes involved speeding

STRATEGIES FOR SPEED MANAGEMENT

• Redesign roadways to naturally calm traffic

• Narrow travel lanes

• Install raised crosswalks and traffic calming features

• Lower speed limits in high-risk areas

• Increase enforcement and public awareness

PROVEN SAFETY COUNTERMEASURES

• Appropriate speed limits can reduce traffic fatalities by up to 26%

• Road diets (4-lane to 3-lane conversions) can reduce crashes by 19–47%

• Road Safety Audits can reduce total crashes by 10–60%

SAFER STREET DESIGN

Roadway design plays a critical role in shaping driver behavior and overall safety.

Issues include:

• Wide travel lanes

• Limited pedestrian refuge areas

• Poor intersection design

These conditions contribute to:

• Speeding

• Failure to yield

• Increased crash severity

STRATEGIES FOR STREET DESIGN

• Implement Complete Streets principles

• Design compact intersections

• Add pedestrian refuge islands

• Improve crossing visibility

• Reduce lane widths where appropriate

COMPLETE STREETS

Complete Streets are designed to safely accommodate:

• Pedestrians

• Bicyclists

• Transit users

• Motorists

They ensure safe access for users of all ages and abilities.

PEDESTRIAN SAFETY

Pedestrians are among the most vulnerable road users.

Key issues include:

• Poor lighting

• Inadequate crossings

• Limited visibility

STRATEGIES FOR PEDESTRIAN SAFETY

• Install high-visibility crosswalks

• Improve street lighting

• Add curb extensions

• Enhance signage and markings

PROVEN COUNTERMEASURES

• High-visibility crosswalks can reduce pedestrian injury crashes by up to 40%

SIDEWALK CONNECTIVITY

Many areas in Jacksonville lack continuous sidewalks, forcing pedestrians into unsafe conditions.

This disproportionately impacts:

• Children

• Older adults

• People with disabilities

STRATEGIES FOR SIDEWALKS

• Expand sidewalk networks

• Close gaps in existing infrastructure

• Maintain and repair existing sidewalks

PROVEN COUNTERMEASURES

• Sidewalks can reduce pedestrian crashes by 65–89%

SCHOOL ZONE SAFETY

Children traveling to school face elevated risks due to:

• High vehicle speeds

• Inconsistent school zone treatments

• Poor crossing conditions

STRATEGIES FOR SCHOOL ZONES

• Lower speed limits

• Improve signage and markings

• Implement Safe Routes to School programs

• Enhance enforcement

PROVEN COUNTERMEASURES

• Speed safety cameras can reduce fatalities and injuries by 20–37%

• Significant reductions in speeding and violations have been observed

INTERSECTION SAFETY

Intersections are high-risk locations, particularly at night.

Challenges include:

• Poor lighting

• Inadequate markings

• Visibility issues

STRATEGIES FOR INTERSECTIONS

• Install LED lighting

• Improve signal visibility

• Use reflective signage

• Add illuminated pavement markings

PROVEN COUNTERMEASURES

• Improved intersection lighting can reduce nighttime crashes by approximately 12%

NIGHTTIME VISIBILITY

A disproportionate number of fatal and serious injury crashes occur at night due to low visibility.

• 60% of pedestrian and bicycle fatal and serious injury crashes occur at night

STRATEGIES FOR VISIBILITY

• Increase street lighting

• Install reflective materials and signage

• Improve crosswalk illumination

BICYCLE SAFETY

Bicyclists face significant risks when sharing roadways with motor vehicles.

Key issues:

• Lack of dedicated infrastructure

• High vehicle speeds

• Driver awareness

STRATEGIES FOR BICYCLE SAFETY

• Expand protected bike lanes

• Improve roadway markings

• Install secure bicycle parking

• Increase education and awareness

PROVEN COUNTERMEASURES

• Bicycle lanes can reduce crashes by up to 30–49%

• Separated bike lanes can reduce crashes by up to 53%

FUNDING AND IMPLEMENTATION

Sustained funding is essential for implementing Vision Zero strategies.

Challenges include:

• Competing priorities

• Limited funding sources

STRATEGIES FOR FUNDING

• Secure federal and state grants

• Prioritize safety in transportation budgets

• Leverage public-private partnerships

CURRENT FUNDING EXAMPLES

• $1.27 million awarded for demonstration projects

• FDOT allocated approximately $156 million in Highway Safety Improvement Program (HSIP) funds

• Over $130 million invested statewide in Safe Routes to School programs

5.4 MEASURING PROGRESS

Achieving Vision Zero requires ongoing evaluation and transparency.

The City will track progress using:

• Crash data

• Project implementation metrics

• Performance indicators

PUBLIC DASHBOARDS

Two dashboards provide public access to data:

• Safety Data Dashboard

  • Tracks fatalities and serious injuries

  • Provides HIN data and trends

• Demonstration & Capital Projects Dashboard

  • Tracks project implementation

  • Shows investment impacts

ACCOUNTABILITY

The City will:

• Conduct regular evaluations

• Provide annual updates

• Adjust strategies based on data

This ensures that Vision Zero remains:

• Dynamic

• Data-driven

• Results-oriented

SUMMARY

The Action Plan Strategies provide a comprehensive framework for improving roadway safety through:

• Data-driven analysis

• Proven safety countermeasures

• Community-informed priorities

• Coordinated implementation

By addressing the root causes of crashes and focusing on high-risk locations, Jacksonville is positioned to make meaningful progress toward eliminating traffic fatalities and reducing serious injuries.

6. VISION ZERO PROJECTS

6.1 CAPITAL PROJECTS

A key component of Jacksonville’s Vision Zero Action Plan is the strategic investment in capital projects that directly address safety concerns along the City’s High Injury Network (HIN).

By aligning infrastructure improvements with crash data and community needs, these projects focus on:

• Reducing fatal and serious injury crashes

• Improving roadway design

• Enhancing multimodal safety

• Managing vehicle speeds

PROJECT IDENTIFICATION PROCESS

To develop the Capital Projects Long-List, the City conducted a screening process that evaluated the High Injury Network against existing and planned projects.

This process incorporated multiple planning efforts, including:

• Capital Improvement Program (CIP) (FY 2024–2028)

• Transportation Improvement Program (TIP) (FY 2024–2028)

• 20-is-Plenty initiative (2024)

• Bicycle and Pedestrian Master Plan (2017)

• Resilient Jacksonville (2023)

• Previous corridor and traffic studies

• FDOT Shared-Use Non-Motorized (SUN) Trail Program

• Active Transportation Infrastructure Investment Program

LONG-LIST DEVELOPMENT

The screening process produced a comprehensive long-list of capital projects, many of which:

• Were previously identified in planning efforts

• Can be enhanced with additional safety improvements

• Align with Vision Zero principles

These projects provide an opportunity to:

• Maximize existing investments

• Accelerate implementation

• Integrate safety improvements efficiently

PRIORITIZATION APPROACH

The final list of capital projects was refined through a prioritization process that emphasized:

• Alignment with the High Injury Network

• Equity and underserved communities

• Multimodal safety improvements

• Feasibility and readiness

This approach ensures that investments:

• Address the most critical safety needs

• Deliver meaningful impact

• Promote equitable outcomes

PROJECT OUTCOMES

Capital projects will focus on:

• Roadway redesign

• Traffic calming

• Pedestrian and bicyclist infrastructure improvements

• Improved visibility and accessibility

These improvements support the City’s goal of:

• Eliminating traffic fatalities

• Reducing serious injuries by 50% by 2035

The full list of capital projects is provided in Appendix E.

6.2 VISION ZERO DEMONSTRATION PROJECTS

The ultimate goal of the Vision Zero Action Plan is implementation. While capital projects often require significant time to fund, design, and construct, demonstration projects provide an opportunity to implement safety improvements more quickly.

PURPOSE OF DEMONSTRATION PROJECTS

Demonstration (quick-build) projects are:

• Lower cost

• Faster to implement

• Temporary or adaptable

• Lower risk

These projects allow the City to:

• Test safety strategies in real-world conditions

• Evaluate effectiveness before permanent investment

• Build public awareness and support

INITIAL PROJECT LIST

The VZAP identifies 25 initial demonstration projects.

These projects:

• Can be funded through existing SS4A grants and future funding opportunities

• Represent a starting point for implementation

• Are not ranked in priority order

The list is not exhaustive, and additional projects may be identified in the future.

PROJECT SELECTION CRITERIA

Key criteria used to select demonstration projects include:

• Location on the High Injury Network

• Alignment with existing planning efforts

• Connectivity to major corridors and trails

• Proximity to schools and community destinations

• Geographic distribution across City Council Districts

ADDITIONAL CONSIDERATIONS

Some projects were selected because they:

• Appear in the Bicycle and Pedestrian Master Plan (2017)

• Connect to major trail systems such as:

  • Emerald Trail

  • Core-to-Coast Trail

  • SUN Trail corridors

• Address safety near schools and community hubs

• Were identified through initiatives such as Blue Zones Jacksonville

IMPLEMENTATION APPROACH

Demonstration projects will:

• Provide visible, near-term safety improvements

• Inform long-term capital investments

• Support iterative, data-driven decision-making

FUNDING

The City has already secured:

• $1.27 million in federal funding for demonstration projects

Additional funding will be pursued through:

• Federal grants

• State programs

• Local funding sources

7. ACKNOWLEDGMENTS

The Vision Zero Action Plan is the result of a collaborative effort involving:

• City of Jacksonville departments

• Jacksonville Transportation Authority (JTA)

• Florida Department of Transportation (FDOT)

• North Florida Transportation Planning Organization (TPO)

• Community organizations

• Advocacy groups

• Residents

The City extends its gratitude to:

• The Vision Zero Task Force and Stakeholder Group

• Community members who provided input

• Transportation professionals and partners

The success of Vision Zero depends on continued:

• Collaboration

• Commitment

• Implementation

Together, these efforts will help create a safer, more equitable, and more connected transportation system for all.

8. APPENDICES

The following appendices provide detailed supporting information for the Vision Zero Action Plan:

• Appendix A – Local Road High Injury Network

• Appendix B – State Road High Injury Network

• Appendix C – Themes and Safety Problems Long-List

• Appendix D – Recommended Strategies and Actions

• Appendix E – Final Capital Projects List

• Appendix F – Proposed Demonstration Projects

APPENDIX A (SUMMARY FORMAT FOR WEB)

Appendix A includes a detailed listing of Local Road High Injury Network segments, including:

• Roadway name

• Segment extents

• Planning district

• Council district

• Mode-specific HIN designation (vehicle, motorcycle, pedestrian, bicycle)

Due to the extensive length of this appendix, it is recommended that users refer to the downloadable PDF version of the Vision Zero Action Plan for the complete dataset.

APPENDIX B (SUMMARY FORMAT FOR WEB)

Appendix B provides similar information for State Road High Injury Network segments and intersections.

These are coordinated with FDOT and are critical for regional safety improvements.

APPENDIX C (SUMMARY FORMAT FOR WEB)

Appendix C includes the full long-list of:

• Themes

• Safety problems

• Supporting data

This appendix documents the full range of safety issues identified during the planning process.

APPENDIX D (SUMMARY FORMAT FOR WEB)

Appendix D provides the complete list of recommended:

• Strategies

• Actions

Each action includes:

• Timeline

• Lead agency

• Cost level

• Performance tracking

APPENDIX E (SUMMARY FORMAT FOR WEB)

Appendix E includes the final list of prioritized capital projects aligned with the High Injury Network.

APPENDIX F (SUMMARY FORMAT FOR WEB)

Appendix F includes the list and descriptions of proposed demonstration projects.

FINAL STATEMENT

The Jacksonville Vision Zero Action Plan establishes a comprehensive, data-driven framework for improving roadway safety.

By focusing on:

• High-risk locations

• Proven safety strategies

• Community-informed priorities

the City is taking a decisive step toward:

• Eliminating traffic fatalities

• Reducing serious injuries

• Creating safer streets for all

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