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PROFILE
iManhattan Pedestrian Safety Action Plan
2015
Pedestrian Safety Action Plan
Manhattan
ii Vision Zero
PROFILE
ii Manhattan Pedestrian Safety Action Plan
Letter from the Mayor
Letter from the Commissioners
Executive Summary
Why a Pedestrian Plan?
About This Plan
Case Studies
Section 1: Manhattan Borough Profile
Case Study: Midtown North
Section 2: Priority Corridors, Intersections, and Areas
Case Study: Chinatown-The Village
Section 3: Community Dialogue and Input
Section 4: Borough Action Plan
Appendix A: Priority Corridors Fatality and Severe Injury History
Appendix B: Priority Intersections Fatality and Severe Injury History
Table of Contents
i
iii
iv
vi
viii
1
10
15
22
27
37
48
ix
49
iv Vision Zero
PROFILE
iv Vision Zeroiv Vision Zero
RECOMMENDATIONS
Page iv of 24
iv
ii
Letter from the MayorDear Friends, Every life in New York City is precious. It is our responsibility, as residents, workers, and visitors of this great city, to save every life we can. This administration made Vision Zero, and the elimination of traffic fatalities, a priority from day one. The fundamental message of Vision Zero is that death and injury on city streets is not acceptable, and that we will no longer regard severe crashes as inevitable. This is reflected in the Vision Zero Action Plan that set out directives for city agencies, including the New York City Department of Transportation, the New York Police Department, and the Taxi and Limousine Commission. Traffic crashes can claim the lives of anyone in New York City. They kill people who drive and those who bike, but overwhelmingly, the deadly toll is highest for pedestrians. This Plan acknowledges this injustice toward pedestrians and the synergies that can be realized by improving pedestrian safety for overall traffic safety, well-being, and urban livability. In close partnership with our community and advocacy groups and our families and friends of lost loved ones, we are dedicating ourselves to ending this epidemic. NYCDOT and NYPD representatives were out in our communities this past summer listening to us, preparing us for the changes that are taking place, and explaining how to be more conscious–and conscientious–street users. Meanwhile, we have been working to improve our collection and understanding of the data behind traffic fatalities, where the ‘hot spots’ are, and what can be done to erase them from the map. The Pedestrian Safety Action Plans help us do just that. Our recent success in reducing the citywide speed limit to 25 MPH, redesigning intersections and corridors and increasing enforcement of the most dangerous driving behaviors are just some of the ways we are making our city’s streets safer. The Pedestrian Safety Action Plans are the next step in achieving Vision Zero in your community. New Yorkers deserve to feel safe on their streets. Thank you for your input into this process, together we will save lives.
Bill de Blasio Mayor
Manhattan Pedestrian Safety Action Plan
ii Vision Zero
PROFILE
ii Manhattan Pedestrian Safety Action Plan ii Vision Zero
RECOMMENDATIONS
ii
iiiiii
Letter from the Commissioners
Dear fellow New Yorkers,
We are proud to bring you the Vision Zero Borough Pedestrian Safety Action Plans. These documents represent the highly detailed combination of DOT and NYPD crash data and analysis, over 10,000 online comments via the Vision Zero Public Input Map, and nine public pedestrian safety workshops across the five boroughs. These borough-specific plans outline our current progress and help define the next phase of Vision Zero.
The first year of Vision Zero in New York City proved successful; after two years of increases, the city experienced the lowest number of pedestrian fatalities since record keeping began in 1910. In 2014, the city lowered its speed limit to 25 MPH, completed over 50 major safety engineering projects, and expanded traffic enforcement dramatically, with speeding summons increasing 42% and failure-to-yield summons increasing 126%. DOT and NYPD partnered to form the Vision Zero Street Team, launching a series of two-phase, two-week campaigns focused on pedestrian safety. The first phase of the campaigns included distributing traffic safety literature to the public at collision-prone locations to promote traffic safety. These weeklong efforts to educate the public were then followed by a week of focused, safety-related enforcement to address persistent violations.
With the Borough Pedestrian Safety Action Plans, we will build on this success and continue to improve the way we monitor, design, and govern our streets. The Borough Priority Maps will serve as a guide for our agencies to systematically improve streets with the highest rates of pedestrian fatality and severe injury. By coordinating our planning, engineering, education, and enforcement efforts in these areas, DOT and NYPD can make significant progress toward the vision of eliminating pedestrian fatalities across the five boroughs.
Over the past 30 years, we have made tremendous progress in traffic safety. We have seen large decreases in the number of fatal crashes, including fatal pedestrian crashes. Motor vehicles, however, continue to seriously injure or kill a New Yorker about every two hours. Each of these tragedies compels us to come together and deliver a safer future for our city. There is plenty of work still ahead of us.
Polly Trottenberg William BrattonDOT Commissioner NYPD Commissioner
Manhattan Pedestrian Safety Action Plan
• Pedestrian fatalities in Manhattan have fallen by 60% in the past three decades • Manhattan’s pedestrian fatality rate is 2.1 fatalities per 100,000 residents, the highest of the five boroughs, but just
1.1 fatalities per 100,000, the lowest of the five boroughs, when taking into account the higher daytime population• Where: Manhattan’s pedestrian fatalities and severe injuries are most heavily concentrated below 59th Street• When: Nighttime (9pm to midnight) pedestrian fatalities account for a greater share in Manhattan (21%) than in all New
York City (15%)• Who: In Manhattan, seniors account for only 14% of the borough’s population but 41% of its pedestrian fatalities• What: Trucks are involved in pedestrian fatalities in Manhattan at a far higher rate (25%) than in any other borough
(12% for all NYC)• How: Dangerous driver choices and dangerous pedestrian choices contributed equally to Manhattan’s pedestrian
fatalities (43% vs 43%)
iv Manhattan Pedestrian Safety Action Plan
FindingsManhattan Borough ProfileExecutive Summary
Priority Corridors, Intersections, and AreasShare ofBorough
Share of Ped KSI*
TotalPed KSI
% of TotalPed KSI
% of Total PedFatalities
% ofBorough
Borough
Priority Corridors
Priority Intersections
Priority Areas
Combined Total
17 corridors (56 miles)
490 miles 815 1,615 50% 51%
12%
41%
67%
15%
50%
1,615
1,615
244
807
1,129 70%
23 sq miles
3,728intersections66 intersections
6.0 sq miles
11%
2%
26%
NEW
JER
SEY
CentralPark
East RiverPark
RiversidePark
Inwood HillPark
Harlem RiverPark
Priority Intersections
Priority Corridors
Priority Areas
Manhattan Priority Map
*Ped KSI: Pedestrians Killed or Severely Injured
vManhattan Pedestrian Safety Action Plan
Community Dialogue and Input• 2,785 Manhattan pedestrian safety issues were shared and mapped digitally• Failure to yield (23%) and speeding (14%) were the most frequently cited issues• 74% of workshop attendees viewed wide arterial streets as the most important areas for pedestrian safety
improvements• 46% of issues shared fall outside of the Priority Corridors, Intersections, and Areas
Action PlanEngineering and Planning
• Implement at least 50 Vision Zero safety engineering improvements annually at Priority Corridors, Intersections, and Areas citywide, informed by community input at project locations
• Significantly expand exclusive pedestrian crossing time on all Manhattan Priority Corridors by the end of 2017 • Add exclusive pedestrian crossing time to all feasible Manhattan Priority Intersections by the end of 2017 • Modify signal timing to reduce off-peak speeding on all feasible Manhattan Priority Corridors by the end of 2017• Install expanded speed limit signage on all Manhattan Priority Corridors in 2015• Drive community input and engagement at Manhattan Priority Corridors, Intersections, and Areas • Consider area-wide policies for Midtown• Continue to expand the off-hours delivery program to reduce truck conflicts with pedestrians• Coordinate with MTA to ensure bus operations contribute to a safe pedestrian environment• Expand a bicycle network in Manhattan that improves safety for all road users• Proactively design for pedestrian safety in high-growth areas in Manhattan including locations in the Housing New
York plan
Enforcement
• Implement the majority of speed cameras at Priority Corridors, Intersections, and Areas• Focus enforcement and deploy dedicated resources to Manhattan NYPD precincts that overlap substantially with
Priority Areas • Prioritize targeted enforcement at Manhattan Priority Corridors, Intersections, and Areas annually• Focus failure-to-yield enforcement on nighttime hours (9pm to midnight)• Initiate a series of targeted truck enforcement blitzes to reduce failure to yield and keep large trucks on truck
routes
Education and Awareness Campaigns
• Target child and senior safety education at Manhattan Priority Corridors and Areas• Target Street Team outreach at Manhattan Priority Corridors, Intersections, and Areas
vi Manhattan Pedestrian Safety Action Plan
Fatalities by Mode: Manhattan Compared to NYC, 2011-2013 Average, Rounded
All NYC Fatalities
Bicyclists
Pedestrians
Motorcyclists58% 73%
6%
9%22%9%
9 %14%
Motor Vehicle Occupants
Manhattan Fatalities
Why a Pedestrian Plan?Pedestrian fatalities have grown as a share of all traffic fatalities
Vision Zero seeks to eliminate all deaths from traffic crashes regardless of whether on foot, bicycle, or inside a motor vehicle. This Borough Plan is one of 63 Vision Zero initiatives advancing that goal for all street users. Despite aggressive pedestrian-oriented street re-engineering between 2007 and 2013, citywide pedestrian fatalities have not declined. In fact, they increased in 2012 and 2013 while fatalities to other street users fell. Comparing the periods of 2005-2007 to 2011-2013, pedestrian fatalities actually rose by 2% while fatalities to all other users fell by 24%. At the same time, the pedestrian share of overall fatalities rose from 51% to 58%. Nationwide, pedestrians make up just 14% of all traffic fatalities.1 In Manhattan, pedestrians are 73% of all fatalities.
The challenge of an aging city
Additionally, the baby-boom generation has begun to hit retirement age and New York City will soon experience a rapid growth of its senior citizen population. The city’s seniors walk much more than those elsewhere in the United States, and their pedestrian fatality rate is four times that of younger New Yorkers. Without a focused strategy on pedestrian safety to address this need, New York City could potentially see an alarming rise in pedestrian fatalities.
Between 2007 and 2013 pedestrian fatalities grew from 51% of all traffic fatalities to 58%
Pedestrian Motorcyclists Motor Vehicle Occupants
157
34
Bicyclists
17
4
37
4
61
4
All NYC
Manhattan
Total
272
46
viiManhattan Pedestrian Safety Action Plan vii
Pedestrian focus improves safety for all users
Street design based around pedestrian safety is also proven to make travel safer for other street users, including bicyclists and motor vehicle occupants. Slower vehicle speeds, less chaotic, better organized traffic, and narrower vehicle lanes make streets safer (and easier to use) for cyclists. A pedestrian oriented project on Delancey Street in Manhattan contributed to a 20% reduction in injuries to cyclists. Similarly, projects and programs aimed at improving safety for pedestrians often improve motor vehicle safety as well. The pedestrian focused re-design of the Madison Square/Flatiron area contributed to a 46% reduction in injuries among motor vehicle occupants.The areas of New York City that accounted for 71% of pedestrians killed or severely injured (KSI) also accounted for 66% of cyclist KSI. Safety interventions at these locations can address safety concerns for both groups of street users.
A comprehensive strategy addressing all modes
New York City will need to go beyond the actions in this plan to address all traffic fatalities, particularly for vulnerable road users: the pedestrians, bicyclists, and motorcyclists that use the streets without the protection of a closed vehicle. These vulnerable road users account for the vast majority (78%) of New York City’s traffic fatalities. Again, comparing 2005-2007 to 2011-2013, vulnerable road user fatalities increased by 1%, while fatalities of motor vehicles occupants fell by 37%. In other words, the entire decline in traffic fatalities between 2007 and 2013 came from reductions in fatalities of drivers and passengers inside motor vehicles. Furthermore, there is significant overlap between the high-crash locations for pedestrian and cyclists.
For bicyclists, DOT will work with the New York City Department of Health and NYPD in 2015 to develop a comprehensive update to its 2006 Bicyclist Fatality and Serious Injuries study, highlighting current issues in cyclist safety in New York City and developing new recommendations. DOT is aggressively seeking to increase the amount of cycling in the city by expanding the bike network where it can generate the most ridership and expanding its Citi Bike bike sharing program. More cyclists using city streets has been shown to have a “safety in numbers” effect; while cycling in New York City has approximately quadrupled since 2000, serious injuries have remained low, representing a 75% decrease in the average risk of a serious injury. Also, DOT will release their first motorcyclist safety study in 2015, which will analyze New York City motorcycle crashes and will also put forward a safety action plan. Finally, New Yorkers with disabilities are also pedestrians. As DOT designs safer streets for all vulnerable users, the agency will continue to work with advocacy groups and members of the disabled community to ensure that the City continues to address the needs of New Yorkers with disabilities. A safer city is a more accessible City.
Since 2007, fatalities of vulnerable road users increased by 1%, while fatalities of motor vehicle occupants fell by 37%
Most pedestrian and cyclist fatalities and severe injuries occur in the same areas of NYC
viii Manhattan Pedestrian Safety Action Plan
About This PlanBeginning with a borough wide community dialogue and input process, DOT and NYPD worked with community members to identify local pedestrian safety issues. By re-engineering these high-crash streets and intersections, employing strategic enforcement practices, and stepping up education efforts, DOT and NYPD can effectively change the way we perceive city streets and deter the most dangerous behaviors, such as speeding and failure to yield to pedestrians.
This Manhattan Pedestrian Safety Action Plan is one of a set of five documents, each of which analyzes the unique conditions of one New York City borough and recommends actions to address the borough’s specific challenges to pedestrian safety. This plan pinpoints the conditions and characteristics of Manhattan’s pedestrian fatalities and severe injuries; it also identifies corridors, intersections, and areas that disproportionately account for Manhattan’s pedestrian fatalities and severe injuries and strategically prioritizes them for safety interventions. Finally, the Manhattan Pedestrian Safety Action Plan recommends a series of actions to alter the physical and behavioral conditions on Manhattan’s streets that lead to pedestrian fatality and injury.
A Five Borough Approach
In each borough, heat maps were created to highlight locations with the highest density of pedestrian fatalities and severe injuries. These maps were then used to create borough Priority Maps. Both maps were built on borough crash data, rather than citywide data. Since each borough has a different overall number and density of pedestrian crashes, each borough map is drawn at a different scale. For example, the “red” we observe in the Staten Island maps represents far fewer crashes than the “red” in the Manhattan maps. DOT and NYPD are tasked with addressing road safety for all residents in all boroughs, so creating five separate action plans was the most practical way to develop a robust set of focused, effective actions for each borough.
This strategic pedestrian safety plan for Manhattan is one of five borough-level plans created to advance the goals laid out in the 2014 Vision Zero Action Plan
ixManhattan Pedestrian Safety Action Plan ix
NEW
JER
SEY
MIDTOWN NORTH
CHINATOWN - THE VILLAGE
CentralPark
East RiverPark
RiversidePark
Inwood HillPark
Harlem RiverPark
Case StudiesTwo case studies have been selected to represent particular communities that are identified as pedestrian safety priority locations in Manhattan. They enable a more localized look at data, issues, and recommendations that may be difficult to contextualize on a borough-wide level. These case studies will be visited in each section of this plan. The locations (shown in the map below) are:
• Midtown North• Chinatown-The Village
The case studies also explore location-specific comments received from community members via the Vision Zero Public Input Map and Pedestrian Safety Workshops.
Case Study Areas Priority Areas
x Vision Zero
PROFILE
x Manhattan Pedestrian Safety Action Plan x
ManhattanBorough Profile
PROFILE
1Manhattan Pedestrian Safety Action Plan
1.The birthplace of New York City, designed generations before the advent of the automobile, Manhattan is laid out on a street system that is highly conducive to dense pedestrian volumes. While the earliest urban neighborhoods of Lower Manhattan consist of irregular, curving streets, the majority of the borough is laid out on a tightly organized grid system (created in 1811) in which compact, east-west streets intersect more widely spaced, north-south avenues at right angles. These famous wide avenues were laid out before the arrival of both the street car and the automobile.
The relatively short blocks of this intuitive street system, in conjunction with densely packed mixed-used development, foster the highly walkable urban environment that is the signature of the borough. It is the most densely populated county in the United States and one of the most densely populated urban areas on earth.
Accordingly, more so than any other borough, Manhattan is a borough of pedestrians. One in five Manhattan commuters walk to work, while nearly six out of ten take public transit (typically combined with two trips on foot). Density of transit is extremely high in Manhattan, the only borough where the subway network is comprehensive, with nearly all residents living within walking distance of the subway. Because of these factors and also because of the borough’s very limited parking supply, nearly 80% of Manhattan households do not own a car. Moreover, while all other boroughs see their populations decline during the daytime on weekdays, due to high volumes of commuters and tourists, Manhattan’s population nearly doubles, vastly increasing the borough’s pedestrian activity.
However, the sheer volume of pedestrian trips in neighborhoods across the borough increases the likelihood of conflict between pedestrians and vehicles. This tendency becomes particularly evident in Manhattan’s most highly congested corridors (e.g., 42nd Street) and busiest neighborhoods (e.g., Midtown), where pedestrian fatalities and severe injuries are most densely concentrated. Most of Manhattan’s 1.5 million weekday commuters are clustered in these areas and nearly all arrive via public transit, creating a huge density of daytime pedestrians in the middle of the island.2 As a result, pedestrians make up nearly three quarters of all of Manhattan’s traffic fatalities (compared to 58% across the City as a whole).
80% of householdsin Manhattan do not own a car
Manhattan is the densest borough
Manhattan’s population nearly doubles each weekday
x2
2 Vision Zero
PROFILE
2 Manhattan Pedestrian Safety Action Plan
As the most pedestrian-oriented place in New York City—if not the entire United States—it is critical that people can get around Manhattan safely on foot. However, though the number of pedestrian fatalities in Manhattan has declined by 60% over the past three decades, on average more than 300 pedestrians are still killed or severely injured on Manhattan streets each year.4
With an average of 34 pedestrian deaths each year, and a population significantly lower than Brooklyn or Queens, Manhattan suffers the highest per-capita pedestrian fatality rate of the five boroughs, with 2.1 pedestrian fatalities per 100,000 residents. However, when taking into account its substantially higher daytime population, Manhattan actually has the lowest per-capita pedestrian fatality rate of the five boroughs (1.1 per 100,000 people during the day).
Applied strategically to high-crash locations across Manhattan, Vision Zero pedestrian safety planning can make Manhattan’s streets safer for the millions of pedestrians who rely on them every day.Manhattan
pedestrian fatalities have decreased by 60% over the past 30 years
On average, 6 pedestrians are killed or severely injuredin Manhattaneach week
The Manhattan Borough Profile combines demographic data with crash and fatality data to provide an overview and contextual narrative for Manhattan. Demographic information was collected from the US Census Bureau. Crash and fatality data used throughout this report is based on 2011-2013 fatality data (NYPD/NYCDOT) and 2009-2013 Killed or Severely Injured (KSI) data (DMV/NYSDOT).3 Estimates of pedestrian activity are based on transit ridership, which is generally proportional.
0
50
100
150
200
250
300
350
400
1983 1985 1990 1995 2000 2005 2010 2013
88 95
6552
4131 35
343
366
243
188
157 152176
An
nu
al P
edes
tria
n F
atal
itie
s
All NYC pedestrian fatalities
Manhattan pedestrian fatalities
Pedestrian Fatalities, 1983-2013
Manhattan Pedestrian Safety Findings
PROFILE
3Manhattan Pedestrian Safety Action Plan
Manhattan’spedestrianfatality rate is the highest of all boroughs
Pedestrian Fatalities, 2011-2013, Rounded
BoroughPercent PedestrianFatalities
Pedestrian Fatality Rate/100,000
Bronx
Manhattan
Queens
Staten Island
All NYC
Brooklyn
Average Annual Fatalities
27
34
43
7
157
46
54%
73%
54%
48%
58%
55%
1.92
1.91
2.10
1.41
1.88
1.79
4 Vision Zero
PROFILE
4 Manhattan Pedestrian Safety Action Plan
Where?
Neighborhoods
As the Manhattan Heat Map shows (page 5), Manhattan’s pedestrian KSI crashes are most densely concentrated below 59th Street, particularly inland from the rivers in Midtown, Chinatown, SoHo, and Greenwich Village. These areas account for some of the highest concentrations of pedestrian activity in the City, vastly increasing the likelihood of conflict between pedestrians and vehicles. Often overcrowded sidewalks serve millions of locals, commuters, and tourists from across the globe, and these groups may not always share consistent rules and norms for street usage. However, the area above 59th Street still contains many intersections and corridors (e.g., Broadway, 3rd Avenue, and 125th Street) with high numbers of pedestrian KSI crashes, especially when examined from a citywide perspective. It is important to note that the overall density of Manhattan’s pedestrian KSI crashes (as compared to the rest of New York City) is high throughout the borough. Relatively “quiet” neighborhoods such as Harlem, Hamilton Heights, and Washington Heights have pedestrian KSI crash rates similar to most of the high-crash sections of other boroughs. These areas only appear low-crash when compared to Manhattan south of 59th Street.
Arterial Streets
Though comprising just 30% of Manhattan’s total street network, 69% of the borough’s pedestrian fatalities occur on arterial roadways (125th Street, 34th Street, and Broadway are all examples of arterials in Manhattan). Pedestrian fatalities are particularly common at intersections along arterial streets (51% versus 44% citywide). Compared to local streets, arterials are typically wider, carry higher volumes of both vehicles and pedestrians, accommodate faster speeds, and have more complex traffic patterns. As a result, arterial streets tend to create particularly high-crash pedestrian environments and can be challenging to improve.
However, many safety improvements can be made. Achieving slower speeds by reducing speed limits and increasing enforcement reduces the risk of injury. Larger-scale engineering projects can provide pedestrians with shorter crossing distances and safer routes to cross the street, while more effectively managing all traffic movements. Leading pedestrian intervals (LPIs)–which give pedestrians a head start to cross wide arterial streets at signalized intersections–may have a particularly powerful impact in Manhattan, where conflicts between turning vehicles and crowds of crossing pedestrians are common. 71% of Manhattan’s intersections are signalized, compared to just 25% citywide.
Arterials comprise 30% of Manhattan’s streets but 69% of its pedestrian fatalities
NEW
JER
SEY
Soho
Tribeca
Chelsea
Midtown
FlatironGramercy
Chinatown
Murray Hill
East Harlem
West Village
Little Italy
East Village
Midtown South
Harlem
Lower EastSide
Upper East Side
GreenwichVillage
CentralPark
East RiverPark
RiversidePark
Inwood HillPark
Harlem RiverPark
Pedestrian Killed or Severely Injured Kernel DensityA smoothing technique for spatial data where the expected density is calculated for every location on the map with the underlying principal that closer KSI are more heavily weighted than farther KSI. Each location is then assigned a color based on the expected density of KSI, with red showing the highest density of KSI and blue showing the lowest. It is useful for identifying and presenting hotspots.
Severe injury data: NYSDOT/NYDMV Accident Database | Fatality data: NYSDOT/NYPD Reconciled Fatality Database
0 31
Approximate pedestrian KSI per sq mile per year:
Fatalities (2009-2013):1 2 3
Manhattan Heat Map and Pedestrian Fatalities
6 Vision Zero
PROFILE
6 Manhattan Pedestrian Safety Action Plan
Overnight
In Manhattan, 27% of all pedestrian fatalities occurred overnight (12–6am). This is especially striking considering that less than 3% of pedestrian activity takes place during these hours. Although street lighting in Manhattan is generally robust, pedestrians are still less visible during these hours. Most importantly, low overnight traffic volumes allow vehicles to accelerate rapidly and reach high speeds. Specific overnight signal timing can help regulate speeds when few vehicles are on the road.
When?
Nighttime (9 pm to midnight) pedestrian fatalities account for a greater share in Manhattan (21%) than in all New York City (15%).
Off-Peak
Just 18% of Manhattan pedestrian weekday fatalities occur during peak times (7–10am and 4–7pm), although 40% of Manhattan’s pedestrian travel occurs during these periods. This discrepancy may be related to rush hour congestion, which constrains vehicle speeds, as well as the “safety in numbers” phenomenon, whereby motorists make safer choices in the presence of higher volumes of pedestrians. The impact of “safety in numbers” may be particularly powerful in Manhattan; not only is it the only borough whose population increases during work days, but Manhattan also has the highest share of peak-hour commuting (74%).
27% of Manhattan’s pedestrian fatalities occur from 12-6am
of Manhattan’s pedestrian weekday fatalities occur during non-rush hour periods
82%
PROFILE
7Manhattan Pedestrian Safety Action Plan
Who?
Pedestrians
Nationwide, motor vehicle occupants comprise the vast majority of traffic fatalities, with pedestrians accounting for about 14% (2010–2012). However, in New York City, where walking is much more common, the figure is significantly higher, making up 58% of traffic fatalities. This trend is particularly evident in high-density, walking-centric Manhattan, where pedestrians constitute 73% of all traffic deaths (the highest share of the five boroughs by a wide margin).
Visitors and Commuters
Each day, the population of Manhattan nearly doubles as visitors and commuters enter the borough. These pedestrians from outside Manhattan also represent a large portion of the borough’s pedestrian fatalities. Between 2009 and 2011, 39% of all pedestrians killed in traffic in Manhattan were not residents of the borough.5
Seniors
Seniors (aged 65 and older) represent just 14% of Manhattan’s population but 41% of its pedestrian fatalities, the highest percentage of all of the five boroughs. This can be partially explained by the large share seniors constitute of Manhattan’s population (a higher percentage than any other borough) and also by the borough’s extremely low motor vehicle ownership rate; seniors who have never owned a car are likely to keep walking as they grow older, rather than rely more on vehicles as they age. Seniors often require more time and protection when crossing the road than younger pedestrians, and they are also more susceptible to fatal and severe injuries when struck by a vehicle. Through its Safe Streets for Seniors initiative, DOT visits senior centers and community boards to get local feedback on senior pedestrian issues. DOT also implements mitigation measures to improve safety for seniors and other pedestrians, such as extending pedestrian crossing times to accommodate slower walking speeds and making engineering improvements to create safer pedestrian crossings.
Vision Zero means improving street safety for all road users, especially the most vulnerable ones. While seniors benefit in general from DOT’s broad efforts to engineer safer streets, DOT also specifically engages with these populations through special safety education programs.
Seniors make up 14% of Manhattan’s population but 41% of its pedestrian fatalities
8 Vision Zero
PROFILE
8 Manhattan Pedestrian Safety Action Plan
The share of pedestrian fatalities involving trucks is twice the city average
of Manhattan’s pedestrian fatalities involvepassengervehicles
49%
What?
Trucks
Citywide, trucks are involved in just 12% of pedestrian fatalities, while the cars, SUVs, and minivans driven by ordinary New Yorkers, account for the vast majority of pedestrian deaths. However, Manhattan is the commercial core of the metropolitan region and nearly every major north/south avenue is a truck route. Here, commuters and residents experience a much higher amount of day-to-day interactions with truck traffic and the share of truck vs pedestrian fatalities is more than twice as high (25%) as all New York City. To reduce the risk of conflict between pedestrians and trucks, DOT can introduce new regulations that limit truck deliveries and double parking during busy daytime hours and incentivize overnight deliveries.
Taxis
Though taxis account for only a small share (2%) of pedestrian fatalities in New York City as a whole, in Manhattan, where taxis are more prevalent than in any other borough, they are involved in 8% of pedestrian fatalities. To curb the risk that taxis may pose to pedestrians, in May 2014 the New York City Council passed Cooper’s Law (Local Law 27 of 2014), which allows TLC to suspend a taxi driver’s license when a crash occurs resulting in a critical injury or death and a summons is issued to the driver for a traffic-related violation or crime. Additionally, the TLC license could be permanently revoked if the driver is convicted of such traffic-related violation or crime and it is determined that the violation or crime was a cause of the critical injury or death.
5%
20%0%
passenger vehicle
truck
bus
taxi/livery
motorcycle
other/unknown
40% 60% 80% 100%
?
8%
2%
11%
49%
25%
Percent of Pedestrian Fatalities by Mode, Manhattan
PROFILE
9Manhattan Pedestrian Safety Action Plan
How?
Dangerous Choices
Across the City, dangerous driver choices—including speeding, failing to yield to pedestrians, red-light running, distracted driving, and driving under the influence—are by far the most frequent contributors to pedestrian fatalities. More often than not, pedestrians are killed while obeying traffic laws.
However, Manhattan is the only borough in which dangerous driver and pedestrian choices contribute to an equal share of pedestrian deaths. Dangerous driver choices and dangerous pedestrian choices contributed equally to Manhattan’s pedestrian fatalities (43% vs 43%). Frequent and pervasive vehicle congestion in Manhattan, in conjunction with dense pedestrian volumes, tends to limit motorists’ ability to reach the driving speeds that are potentially fatal for pedestrians; speeding contributes to pedestrian fatalities at roughly half the rate in Manhattan as in the City overall. Also, Manhattan has a lower rate of hit-and-run pedestrian fatalities than citywide (16% vs 23%), most likely due to its high percentage of professional drivers (e.g., taxi, bus, and delivery drivers) using the streets.
On the other hand, tight competition for limited pedestrian space and double parking may lead to riskier pedestrian behaviors–such as walking in the street and emerging from behind parked cars–than may be seen in other boroughs with less crowded sidewalks. However, the percentage of pedestrians killed or severely injured crossing against the signal in Manhattan was almost identical to citywide (21% vs 20%) and fewer pedestrians in Manhattan were killed crossing midblock than citywide (26% vs 31%).
The City is working to create a culture of safety through education and public information campaigns that are changing the citywide dialogue on traffic injuries and fatalities. However, street design and traffic enforcement that directly encourage safer choices (or discourage dangerous choices) are also key to reaching Vision Zero. Street design can help to lower vehicle speeds, eliminate conflicts between pedestrians and vehicles, reduce unpredictable traffic movements, and guide road users toward more responsible choices. More visible, targeted, and consistent enforcement reminds street users of the laws of the road and provides a powerful disincentive to risk-taking.
Dangerous driver choices and dangerous pedestrian choices contributed equally to Manhattan’s pedestrian fatalities (43% vs 43%)
Dangerous driver choices
Dangerous pedestrian choices
Driver & Pedestrian Choices, Manhattan compared to NYC
Manhattan Pedestrian Fatalities2011-2013
All NYC Pedestrian Fatalities2011-2013
43% 53%43% 31%
13% 16%56% 69%
Dangerous driver andpedestrian choices
Home to most of the City’s tallest buildings, bus-iest transit hubs, and iconic attractions, Midtown Manhattan, stretching roughly from 34th street to 59th Street, generates pedestrian activity at all hours of the day and night. However, as evidenced in the Manhattan Heat Map (page 5), Midtown also accounts for one of the densest concentrations of pedestrian KSI in Manhattan. Between 2009 and 2013, there were 2,684 crashes in the area involving pedestrians, resulting in 252 severe injuries and 23 fatalities.
As New York’s largest central business district, Midtown’s demographics differ significantly from the rest of Manhattan, and the city as a whole. It encom-passes a residential population that is more racially homogeneous than Manhattan’s, with roughly three out of four residents identifying as white. The aver-age household size in Midtown is notably smaller, which translates to fewer children residing in the area. Moreover, while Midtown’s unemployment rate is comparable to Manhattan’s, Midtown is home to higher earners than the borough as a whole, accounting for a median household income roughly 25% higher than the borough’s.
CASE STUDY: Midtown North
2,684
Total crashes involving pedestrians between 2009-2013
These crashes resulted in 275 pedestrian KSI:
of all traffic fatalities were pedestrians
92%
252severeinjuries
23fatalities
10 Manhattan Pedestrian Safety Action Plan
Community Input
Grand Central
Port Authority Bus Terminal
Penn Station
FDR
DRIV
E
WEST SIDE HW
Y
LINCOLN TUNNEL
MIDTOWN TUNNEL
ED KOCH BRIDGE
UPPEREAST S IDE
UPPERWEST S IDE
HELL’SKITCHEN
GARMENTDISTRICT
MIDTOWNEAST
MURRAYHILL
MIDTOWN4 5 6
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4 5 6
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9 AV
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Central Park
Bryant Park
Midtown North Case Study Area
Speeding @ 53rd St & 6th Ave: “The upper section of 6th Avenue, between 48th Street and 59th Street is like a speedway, with cars zooming...Very dangerous!”
Poor Visibility @ 51st St & 3rd Ave: “Large vehicles parked right up to the crosswalk make it difficult to see up 51st street without walking into possible oncoming traffic.”
Failure to Yield @ 40th St & 9th Ave: “Vehicles turning onto 40th St. often don’t yield to pedestrians or to cyclists. There should be separate traffic lights for turning vehicles, as there are on Ninth Avenue below 30th St.”
PriorityIntersections
PriorityAreas
PriorityCorridors 1 2 3 4 5+
PedestrianKSI
SubwayStations
Black outline represents the approximate boundary of the case study area.
11Manhattan Pedestrian Safety Action Plan
PROFILECASE STUDY: Midtown North
Pedestrian SafetyMidtown is one of the most transit- and pedestrian-oriented neighborhoods in the United States. Virtually every subway line passes through Midtown, while commuter bus and rail lines converge in one of Midtown’s three transit terminals (Penn Station, Grand Central Station, and the Port Authority Bus Terminal), leaving most travelers to continue their journeys on foot. Among neighborhood residents, about four out of ten walk to work (compared to 10% citywide), and an equal share takes transit. Consequently, very few Midtown households own a car. Street space is at a premium in Midtown and conflicts between competing users (cars, pedestrians, cyclists, buses, delivery trucks, food carts, bike-share stations, parked vehicles, etc.) are common. Midtown attracts Manhattanites, outer-borough and out-of-state commuters, and tourists from across the globe, accommodating diverse expectations and customs of how streets are used. Resulting from these characteristics and demographics is an overwhelming street environment that too often leads to severe and fatal pedestrian crashes.
Community Dialogue and InputThe residential population of Midtown West has increased substantially in recent years. Consequently, arterials, such as 9th Avenue began transforming from industrial uses to restaurants, shops, and other uses that attract pedestrians. This created an environment where pedestrians have to compete with vehicle traffic generated by the remaining industrial buildings and the new retail establishments. Residents felt that this exacerbated the area’s existing traffic and pedestrian safety issues. In mid-2005, local residents and community leaders formed The Clinton/Hell’s Kitchen Pedestrian Safety Coalition (CHEKPEDS), a community-based organization with the goal of reclaiming 9th Avenue from automobile traffic to restore safety and vitality. CHEKPEDS worked closely with local residents, businesses, and organizations to determine community
priorities and goals for 9th Avenue and published findings in a comprehensive report entitled 9th Avenue Renaissance. With these objectives in mind, through direct advocacy with elected officials, Community Board 4, local businesses, and other civic groups, CHEKPEDS has achieved a number of community safety goals including the installation of pedestrian refuge islands, leading pedestrian intervals (LPIs), speed bumps, and Citi Bike stations in parking spaces (not on sidewalks).6
DOT Safety Improvements
In recent years, DOT has worked to create more dedicated spaces for Midtown Manhattan’s diversity of street users in order to calm traffic, improve the pedestrian and cyclist environment, and create a safer experience for all.
12 Manhattan Pedestrian Safety Action Plan
Midtown Broadway (before)
Midtown Broadway (after)
Green Lightfor Midtown
Pedestrians injuries fell by 24% throughout the project area
31%
“Finally, with Vision Zero pedestrian safety will be the overarching goal in redesigning the most dangerous intersections.”
—CHEKPEDS
total injuries
13Manhattan Pedestrian Safety Action Plan
Green Light for MidtownWhile Broadway runs the entire length of Manhattan, its diagonal path through Midtown creates unconventional intersections, which invite conflict between pedestrians and vehicles.
In 2009, DOT launched Green Light for Midtown to tackle the pedestrian safety issues along Broadway, while simultaneously adding open space, improving mobility, and enhancing quality of life along the corridor.
By closing sections of Broadway to vehicular traffic, DOT shortened pedestrian crossing distances; simplified intersections; organized traffic better; and developed distinct street space for vehicles, pedestrians, and cyclists by creating pedestrianized streets, plazas, and bike lanes.
Throughout the entire project area–including portions of Broadway, 6th Avenue, and 7th Avenue–pedestrian injuries were 24% lower after implementation. Times Square and Herald Square experienced large safety improvements, with declines in pedestrian injuries of 33% and 26% respectively. In addition, total injuries declined by 31%, with an even larger decrease (47%) in injuries to motor vehicle occupants.7
PRIORITIES
14 Manhattan Pedestrian Safety Action Plan
Priority Corridors, Intersections,and Areas
PRIORITIES
15Manhattan Pedestrian Safety Action Plan
Manhattan has nearly 500 miles of roadway and more than 3,700 intersections. Since resources are always finite, it is necessary for New York City to focus its safety efforts on a reasonable number of high-crash locations that demonstrate a need for focused interventions. Using pedestrian KSI data from the last five available years (2009-2013), DOT developed a process for selecting Priority Corridors, Priority Intersections, and Priority Areas. These locations account for 67% of Manhattan’s total pedestrian fatalities.
Pedestrian KSI data was employed in this analysis for two reasons. First, a pedestrian who has been severely injured typically departs the crash scene in an ambulance and often experiences life-changing injuries (e.g., loss of mobility, brain function, limbs). A comprehensive street safety program must address these types of pedestrian injuries as well, not just fatalities. Second, severe injuries are more numerous and less randomly dispersed than traffic fatalities. Thus, severe injuries are more useful and reliable in terms of ranking one corridor, intersection or area.
2.
of Manhattan’s pedestrian fatalities occur on Priority Corridors, at Priority Intersections, or in Priority Areas
67%
PRIORITIES
16 Manhattan Pedestrian Safety Action Plan
Priority CorridorsPrioritizing corridors (streets measuring at least one mile in length) reflects the fact that pedestrian KSI crashes are concentrated on particular streets (69% of Manhattan pedestrian fatalities are on arterials) and that strings of intersections along certain streets often exhibit similar safety concerns and should be considered together. In addition, an intersection-only analysis would not account for the large share (30%) of Manhattan pedestrian fatalities that occurs midblock.
To determine the Priority Corridors, all corridors in Manhattan were ranked on a pedestrian KSI per-mile basis. Corridors were selected from the top of this list until the cumulative number of KSI reached half of the borough’s total. Together, Manhattan’s 17 Priority Corridors constitute 11% of Manhattan’s total street network but account for 50% of the borough’s total pedestrian KSI. See appendix for a complete list of the Priority Corridors.
50% of Manhattan’s pedestrian KSI occur on just 11% of the borough’s total street mileage N
EW J
ERSE
Y
2 AV
1 AV3
AV
8 AV
7 AV
6 AV
9 AV
14 ST
34 ST
42 ST
23 ST
125 ST
HOUSTON ST
57 ST
CANAL ST
ADAM
C P
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Priority Corridors
PRIORITIES
17Manhattan Pedestrian Safety Action Plan
PRIORITIES
18 Manhattan Pedestrian Safety Action Plan
Priority IntersectionsIn order to identify which of Manhattan’s more than 3,700 intersections have the highest need and greatest potential safety gains, DOT used an approach similar to the Priority Corridor process. DOT selected the intersections with the highest number of pedestrian KSI that cumulatively account for 15% of the borough’s total pedestrian KSI. This is a lower share than that used for corridors and areas because crashes involving fatal or severe injuries to a pedestrian are spread out widely among more than 900 intersections. Not only would such a large number of intersections be impractical to address in the scope of one plan, but at the vast majority of these intersections, only one pedestrian KSI occurs in the data, which may not indicate a systematic need for intervention.
This methodology yielded 66 Priority Intersections across Manhattan. Together, these intersections account for 15% of Manhattan’s pedestrian KSI but represent less than 2% of all its intersections. See appendix for a complete list of the Priority Intersections.
15% of Manhattan’s KSI occurred at less than 2% of the borough’s intersections
NEW
JER
SEY
CentralPark
East RiverPark
RiversidePark
Inwood HillPark
Harlem RiverPark
HighbridgePark
Priority Intersections
PRIORITIES
19Manhattan Pedestrian Safety Action Plan
PRIORITIES
20 Manhattan Pedestrian Safety Action Plan
Priority AreasSome of the safety issues throughout Manhattan occur systematically at an area-wide level and are not confined to a single intersection or street. To account for these areas, the pedestrian KSI crash dataset was transformed into a kernel density map—or heat map—which indicates where the density of these crashes is highest. The Priority Areas were determined by identifying the “hottest” areas on the map that, when combined, account for half of all of pedestrian KSI in the borough. In total there are 6 square miles of Priority Areas in Manhattan. Although these areas contain 50% of all pedestrian KSI in the borough, they constitute just 26% of the borough’s land area.
There are 6 square miles of Priority Areas in Manhattan
of Manhattan’s pedestrian KSI occur in just 26% of the borough’s total land area
50%
The combined map of Priority Corridors, Intersections, and Areas covers 70% of pedestrian KSI in Manhattan, and shows where DOT and NYPD interventions are needed most. This map will serve as a guide to where engineering, enforcement, and education measures will be most effective at reducing pedestrian fatalities and severe injuries.
NEW
JER
SEY
CentralPark
East RiverPark
RiversidePark
Inwood HillPark
Harlem RiverPark
HighbridgePark
Priority Areas
NEW
JER
SEY
1
34
19
69
22
75
18
13
20
10
33
24
26
25
114
32
17
2325
14
30
28
2 AV
1 AV3
AV
8 AV
7 AV
6 AV
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14 ST
34 ST
42 ST
23 ST
125 ST
HOUSTON ST
57 ST
CANAL ST
ADAM
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CentralPark
East RiverPark
RiversidePark
Inwood HillPark
Harlem RiverPark
Manhattan Priority Map
PriorityIntersections
PriorityAreas
PriorityCorridors
NYPDPrecincts
NYSDOT/NYDMV Accident Database 2009-2013
Share ofBorough
Share of Ped KSI*
TotalPed KSI
% of TotalPed KSI
% of Total PedFatalities
% ofBorough
Borough
Priority Corridors
Priority Intersections
Priority Areas
Combined Total
17 corridors (56 miles)
490 miles 815 1,615 50% 51%
12%
41%
67%
15%
50%
1,615
1,615
244
807
1,129 70%
23 sq miles
3,728intersections66 intersections
6.0 sq miles
11%
2%
26%
PROFILEPROFILE
The Chinatown-The Village study area is bounded by 14th Street, Allen Street, Canal Street, and 6th Avenue. With a dense residential population, and popular shopping and nightlife destinations, most of the area experiences high pedestrian volumes at all hours of the day and night. This area also accounts for one of the densest concentrations of pedestrian KSI in Manhattan. Between 2009 and 2013, there were 1,273 crashes in the area involving pedestrians, resulting in 171 severe injuries and 10 fatalities.
A diverse population resides within the Chinatown-The Village area. Nearly one-third of the area’s residents are foreign-born, the majority of whom emigrated from Asia (mostly China) and live in Chinatown. While the area’s median age is slightly younger than Manhattan’s overall, it is rather polarized by age group; some sections, such as the environs of New York University, are home to an unusually high percentage of young adults (aged 18–24), while others, such as the section of Chinatown around the Manhattan Bridge, are home to a disproportionately high share of senior citizens over 65 years of age.
CASE STUDY: Chinatown-The Village
1,273
Total crashes involving pedestrians between 2009-2013
These crashes resulted in 181 pedestrian KSI:
of all traffic fatalities were pedestrians
71%
171severeinjuries
fatalities
22 Manhattan Pedestrian Safety Action Plan
10
Community Input Chinatown-The Village Case Study Area
CHINATOWN
SOHO LOWER EAST S IDE
EAST V ILLAGE
GREENWICHV ILLAGE
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UnionSquare
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CANAL ST
1 AV
2 AV
3 AV
6 AV
14 ST
Long Distance to Cross @ Houston & Mulberry: “Not nearly enough time to cross. I can barely make it across Houston in this vicinity walking pretty fast. An older or disabled citizen will probably avoid the [cross]ing altogether.”
Failure to Yield @ Centre & Kenmare: “Cars turning right from Centre Street onto Kenmare Street do not yield to pedestrians. The problem is compounded when vehicles make right turns from the left lane (cutting off drivers in the right lane). In this situation, the drivers often become distracted and try to “beat” each other to make the turn, ignoring pedestrians who are in the crosswalk.”
Speeding @ 9th St & 4th Ave: “At the north side of this intersection there is currently a painted area that seems intended to direct traffic. It doesn’t seem drivers pay much attention to this paint. They also seem to speed onto this section of road. Perhaps a pedestrian refuge that extended through the crosswalk would raise the visibility of this painted road area, slow cars down and provide a place for pedestrians to wait while they navigate this long crossing.”
PriorityIntersections
PriorityAreas
PriorityCorridors 1 2 3 4 5+
PedestrianKSI
SubwayStations
White outline represents the approximate boundary of the case study area.
23Manhattan Pedestrian Safety Action Plan
PROFILEPROFILE
Pedestrian SafetyPublic transportation and walking are essential parts of daily life for most of the area’s residents, with the vast majority getting around by transit or on foot. In fact, more than 80% of households do not even own a vehicle, and less than 10% drive to work. Thus, street safety for pedestrians is critical.
However, according to the Vision Zero Public Input Map, pedestrians report a competitive street environment with motorists often disregarding the pedestrian’s right of way, particularly on the major east-west arterials (Canal Street, Delancey Street, Houston Street, and 14th Street). Many of the area’s extremely wide and often confusing intersections—such as Houston Street and Broadway or Delancey Street and Bowery—pose difficult crossing opportunities for pedestrians, while motorists are frequently seen speeding and running red lights. Double parking is seen as a commonplace infraction across the area while prompting unpredictable vehicle movements, blocking pedestrian visibility of oncoming traffic, and obstructing safe bicycle movement through designated bike lanes.
Community Dialogue and InputManhattan’s Chinatown is a true marketplace with a vibrant street life. However, with sidewalks packed with vendors and streets clogged with both parked and moving vehicles, pedestrians are often afforded limited space to safely move about the neighborhood. To address space management issues on Chinatown streets, DOT partnered with the Chinese Consolidated Benevolent Association (CCBA) and the Asian American Federation (AAF) to undertake the Chinatown Curbside Management Study (CCMS).
The CCMS relied heavily on innovative community outreach strategies in order to understand the unique needs of Chinatown pedestrians. For instance, in addition to interactive public meetings, DOT held mobile workshops (with translation services provided
by the local organization Asian Americans for Equality) in neighborhood parks, in which passersby provided feedback regarding the highest-need locations for parking and street improvements. DOT also assembled an advisory coalition of local stakeholders and residents to offer technical experts a deeper understanding of community needs.
DOT Safety Improvements
Throughout Lower Manhattan, DOT has worked to calm traffic through the introduction of additional pedestrian spaces and bike lanes. Through an array of traffic-calming projects, DOT has better organized traffic flow, improved pedestrian safety, and enhanced quality of life for communities across the area.
CASE STUDY: Chinatown-The Village
24 Manhattan Pedestrian Safety Action Plan
PROFILE
Allen/Pike Streets (before)
Allen/Pike Streets (after)
Allen/PikeStreets
Pedestrian injuries declined by 14% while all injury crashes declined by 18%
“Thanks to Council Member Margaret Chin, the Mayor’s Office and NYC DOT, new slow speed zones and pedestrian safety measures have been implemented throughout our district to save lives.”—Wellington Chen, Chinatown Partnership
Allen/Pike StreetsIn the three years following implementation, crashes with injuries declined by 18%.
Allen and Pike Streets form a wide, two-way, median-separated arterial that cuts through the Lower East Side and Chinatown, neighborhoods with high pedestrian volumes and large senior populations but minimal public space or pedestrian infrastructure.
To better organize traffic, shorten crossing distances, and create a safer and more pleasant pedestrian and cycling experience, DOT and the Parks Department transformed two segments of the once crumbling central median into an attractive pedestrian walkway and physically separated bike path.
DOT closed four low-volume intersections to vehicular traffic to create pedestrian-only plazas complete with street furniture and landscaping. In addition, the corridor is used by the M15 SBS route, making it a truly ‘complete street.’
This design improved safety for all street users on Allen and Pike Streets: in the three years following implementation, all injury crashes declined by 18%, while pedestrian injuries dropped by 14% and cyclist injuries by 31%.
25Manhattan Pedestrian Safety Action Plan
DIALOGUE & INPUT
26 Manhattan Pedestrian Safety Action Plan
Community Dialogue and Input
DIALOGUE & INPUT
27Manhattan Pedestrian Safety Action Plan
Facing image: Vision Zero Pedestrian Safety Workshop, West Village
3.Achieving Vision Zero, and truly making New York City’s streets safe for all users, hinges upon an active dialogue between the public and the City. While DOT utilized quantitative crash data to determine Manhattan’s highest-priority corridors, intersections, and geographic areas, qualitative feedback from community members deeply enriches DOT’s understanding of these priority locations. Feedback collected online and via public workshops produced a geographic database of community safety concerns that will allow DOT to design high-quality Vision Zero safety projects that incorporate local knowledge of pedestrian issues.
DOT took a proactive and innovative approach to community engagement to yield a robust dataset of local expertise. This section details the public outreach activities DOT conducted to gather feedback from Manhattan residents.
DIALOGUE & INPUT
28 Manhattan Pedestrian Safety Action Plan
Vision Zero Public Input MapThe interactive, online Vision Zero Public Input Map offered New Yorkers the opportunity to identify pedestrian safety issues at any time, from anywhere (even mobile devices). To report a pedestrian safety issue, users panned across a map of New York City and zoomed to an intersection of concern. Clicking on the intersection caused a Google Street View image of the selected intersection to appear. Users then chose one of ten safety issue icons, dragged it to the precise location where the issue occurs, and provided comments detailing their issue (see figure below). Other users could then share additional comments about, or voice their agreement with, existing comments.
Manhattan residents shared almost 2,800 pedestrian safety issues
of issues shared on the website focus on speeding and failure to yield to pedestrians
ST
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ISLA
ND
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NH
AT
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Long Wait to cross
Long Distance to cross
Not enough time to cross
Cyclist behavior
Visibility
Jaywalking
Red light running
Double parking
Speeding
Failure to yield
0 100 200 300 400 500 600 700
11%
2%
4%
5%
5%
6%
6%
11%
13%
14%
23%
The breakdown of issues by category logged on the Vision Zero website closely reflected that of the issues recorded at the Pedestrian Safety Workshops.
37%
DIALOGUE & INPUT
29Brooklyn Pedestrian Safety Action Plan
Website FindingsAt the close of the three-month online comment period (May–July 2014), location-specific issues collected at the Pedestrian Safety Workshops were geocoded and added to the online map, producing a unified geographic database of residents’ pedestrian safety concerns (see Manhattan Community Input Map, page 35). In total, users shared 2,785 issues at 1,264 unique locations (representing nearly 35% of intersections) across Manhattan—an average of 2.2 issues per location. Moreover, Manhattan residents not only engaged with DOT on these issues but with each other as well: users commented on others’ issues 845 times and gave clicks of support 1,933 times.
Manhattan is the only borough in which more users expressed concern over drivers failing to yield to pedestrians (23%) than speeding (14%). Consequently, working toward Vision Zero in Manhattan, DOT will pay special consideration to increased enforcement of reckless driving at Priority Intersections, as well as interventions designed to curb speeding such as Slow Zones and speed bumps.
Manhattan residents commented on about 35% of all Manhattan’s intersections
“We need to effect a cultural shift in this city, so that people realize [drivers] are handling a deadly weapon when they’re on the streets, and they handle it with appropriate care.”
– Mark Levine, Council Member
DIALOGUE & INPUT
30 Manhattan Pedestrian Safety Action Plan
Spanish public outreach flyer used to advertise the workshops
Public EventsFrom March through June 2014, DOT, NYPD, elected officials, and civic organizations hosted six official Vision Zero public events across Manhattan. In the form of participatory workshops and town hall meetings, these events were designed to gather local pedestrian safety concerns, launch an ongoing dialogue about street safety in Manhattan, and instill the message that pedestrian fatalities are preventable and not the inevitable feature of city life they are often perceived to be.
Town Halls
Kicking off Vision Zero outreach in Manhattan, a group of Manhattan’s elected officials hosted a town hall meeting at John Jay College on March 26th. Before a packed auditorium of nearly 250 attendees, a panel including DOT Commissioner Polly Trottenberg, City Council Speaker Melissa Mark-Viverito, Manhattan Borough President Gale Brewer, City Council Transportation Chair Ydanis Rodriguez, Councilmember Margaret Chin, NYPD Chief of Transportation Thomas Chan, and other local representatives listened to community members’ concerns regarding pedestrian safety in their neighborhoods. Specific topics discussed included escalated enforcement and penalties for unsafe driving, heightened monitoring of Taxi and Limousine Commission (TLC) livery vehicles, an expansion of audible crossing signals for vision-impaired pedestrians, and wider public education of street safety. Similar town-hall meetings were hosted by Senator Liz Krueger and several Manhattan community boards.
PATROCINADORES (lista en el desarrollo)
Miércoles, 11 de junio Las puertas se abren a las 6:30P.M. La última sesión empieza a las 8:00P.M.Our Lady of Pompeii (nivel inferior) 25 Carmine Street
W4th, Houston
Lunes, 16 de junio Las puertas se abren a las 6:30P.M. La última sesión empieza a las 8:00P.M.Alhambra Ballroom 2116 Adam Clayton Powell Boulevard
125th Street
TALLER DE SEGURIDAD PEATONAL
Más de 250 personas mueren cada año en choques en trafico en NYC.
La ciudad creará 50 proyectos anualmente para que las calles sean más seguras. Venga y cuéntenos donde podemos mejorar la seguridad peatonal en su comunidad.
Los choques se pueden prevenir. Juntos, podemos salvar vidas.
Habrá un intérprete disponible en la reunión. 將會安排口譯員在會議中進行翻譯•
Public Advocate Letitia JamesComptroller Scott StringerBorough President Gale BrewerSpeaker Melissa Mark-ViveritoCouncilmember Ben KallosCouncilmember Corey JohnsonCouncilmember Daniel GarodnickCouncilmember Helen RosenthalCouncilmember Inez DickensCouncilmember Margaret Chin (6/11)Councilmember Mark LevineCouncilmember Rosie MendezCouncilmember Ydanis RodriguezAssemblymember Brian KavanaghAssemblymember Dan QuartAssemblymember Daniel O’DonnellAssemblymember Deborah J. GlickAssemblymember Gabriela Rosa
Assemblymember Herman D. FarrellAssemblymember Keith WrightAssemblymember Linda B. RosenthalAssemblymember Micah KellnerAssemblymember Richard N. GotfriedAssemblymember Robert J. RodriguezSenator Adriano EspaillatSenator Bill PerkinsSenator Brad HoylmanSenator Daniel SquadronSenator Jose SerranoSenator Liz Krueger125th Street BID34th Street Partnership47th Street BID5th Avenue AssociationAlliance for Downtown NYCHEKPEDS
Chinatown PartnershipChinese Consolidated Benevolent
Association (CCBA) 中華會館Coalition for a Livable West SideColumbus Avenue BIDColumbus-Amsterdam BIDCommunity Boards 1-12East Midtown PartnershipFamilies for Safe StreetsFlatiron BID/23rd Street PartnershipGarment District AllianceGood Old Lower East Side (GOLES)Harlem Business AllianceHudson Square ConnectionLincoln Square BIDLower East Side BIDMadison Ave BIDMunicipal Art Society
New York League of Conservation Voters Education Fund
StreetsPACTA Manhattan CommitteeThe Village AllianceTri-State Transportation CampaignTwo Bridges Neighborhood CouncilUnion Square PartnershipUnited Neighborhood HousesWashington Heights BIDWeACTWest Harlem Art Fund
In collaboration with: Congressman Charles Rangel, Congresswoman Nydia Velazquez
“Vision Zero is not simply about achieving a numerical goal; it really is looking at changing our perspective … about pedestrian safety.”
— Melissa Mark-Viverito, City Council Speaker
DIALOGUE & INPUT
31Manhattan Pedestrian Safety Action Plan
participants attended public workshops in Manhattan
100+
Discussion of pedestrian safety concerns at the Alhambra Ballroom
Pedestrian Safety Workshops
Concurrent with the town hall meetings, DOT hosted two public workshops in Manhattan, which drew about 100 participants. As both workshops were designed to address borough-wide safety concerns, their geographically dispersed locations—Our Lady of Pompeii Church in Greenwich Village and the Alhambra Ballroom in Harlem— were selected to attract the widest possible audience. DOT also worked with 75 elected officials, community boards, and civic groups to promote the workshops to a broad range of constituencies across the borough. Spanish and Mandarin interpreters were also available to allow a diverse cross section of Manhattan residents to participate in the workshops.
DIALOGUE & INPUT
32 Manhattan Pedestrian Safety Action Plan
Workshop attendees log safety issues at Our Lady of Pompeii Church
Half of workshop attendees think red light and speed cameras should be used more to combat aggressive driving
Workshop Format
At tables of approximately eight people—including two DOT staff members and one NYPD officer—a DOT facilitator made a brief presentation on Vision Zero safety strategies then led a group discussion around pedestrian safety issues in Manhattan. Next, participants visited a mapping station, where, using ten distinct stickers (which corresponded to the ten issue icons on the Vision Zero Public Input Map), they pinpointed precise locations where pedestrian safety issues occur around Manhattan (see page 35). Participants then recorded these issues and locations on worksheets, which DOT staff collected at the conclusion of the workshop. Finally, participants completed a survey designed to gather both general and specific pedestrian safety concerns and to evaluate DOT’s public outreach strategies.
DIALOGUE & INPUT
33Manhattan Pedestrian Safety Action Plan
Workshop Findings
Consistent with the Vision Zero website findings for Manhattan, feedback from the group discussions, worksheets, and surveys shows that aggressive driving behaviors, such as speeding and failure to yield, are the issues of greatest concern to residents. More than 75% of participants rated these issues as problematic and about 50% said they were “major problems” in Manhattan.
Participants stressed the importance of a wide array of measures to help combat these dangerous behaviors including redesigning streets to make them more pedestrian-friendly (67%) and to reduce motorist speeds (50%), as well as increasing the usage of speeding and red light cameras (51%), particularly on wide arterial streets and near transit stops and schools.
of workshop attendees view making streets more pedestrian friendly as one of the most important strategies for achieving Vision Zero
67%
Types of locations and interventions workshop attendees would like DOT/NYPD to focus on in the Manhattan, by frequency.
0% 20% 40% 60% 80%
Other
Industrial/trucking streets
Office/commercial streets
Retail/shopping streets
Residential/neighborhoodstreets
Near schools
Near subways/bus stops
Wide/arterial streets
MN0% 20% 40% 60% 80%
Other
Increase enforcement
Increase awareness throughcommericials, posters, etc.
Reduce speed limits
Redesign streets to reduce vehicle speeds
Increase the use ofspeed/red light cameras
Redesign streets to bemore walking-friendly
DIALOGUE & INPUT
34 Manhattan Pedestrian Safety Action Plan
Community Input Influencing DesignIn late summer 2014, following the completion of the final workshop and the closure of the online Vision Zero Public Input Map, DOT compiled all community feedback, pedestrian safety worksheets, participant surveys, completed maps, and issues shared on the Vision Zero website. This information is being maintained and analyzed to support future public outreach, education, enforcement, and engineering. It will also be referenced in the following section of this Plan. The Community Input Map, combined with the Manhattan Priority Map laid out in Section 2, form a geographically specific knowledge base of both quantitative pedestrian crash data and qualitative community feedback. This allows DOT to integrate local knowledge into Vision Zero project planning in order to foster a proactive, responsive project planning process at the borough’s highest-crash locations. A composite priority map for Manhattan is shown on the facing page. This map will serve as the basis of DOT’s Manhattan Pedestrian Safety Action Plan.
As the map reveals, the locations with the most public input and high pedestrian-KSI-crash density do not always overlap. There are several factors influencing the likelihood of particular communities throughout Manhattan to log issues, from the strength of local outreach and advocacy groups, to the location of workshops, to language and internet connectivity barriers.
It is vital to the success of Vision Zero in Manhattan that all communities across the borough are given an equal opportunity to share their pedestrian safety concerns. As such, DOT will redouble its outreach efforts to communities with low levels of existing feedback, especially those in high pedestrian-crash areas. Also, DOT and NYPD will ensure that traffic engineering, enforcement, and education work will be conducted in the areas with the highest need, not just those with the loudest voices.
46%
of shared issues fall outside of Priority Corridors, Intersections, and Areas
NEW
JER
SEY
CentralPark
East RiverPark
RiversidePark
Inwood HillPark
Harlem RiverPark
Not enough time to cross Jaywalking
Poor visibility
Other
Double parking
SpeedingLong wait to cross
Long distance to crossRed light running
Failure to yield to pedestrians
Cyclist behavior
Priority Intersections
Priority Corridors
Priority Areas
Manhattan Community Input Map
ACTION PLAN
36 Manhattan Pedestrian Safety Action Plan
Borough Action Plan
ACTION PLAN
37Manhattan Pedestrian Safety Action Plan
4. Based on the crash findings, prioritization, and community input presented previously in this report, DOT and NYPD have developed a comprehensive set of actions to be implemented in Manhattan. These actions, and the findings that informed their creation, will be reviewed every three years from the release of this plan.
DOT and NYPD use a three-pronged approach to pedestrian safety, including Engineering and Planning actions, Enforcement actions, and Education and Marketing actions. These proposed actions are vital tools in achieving Vision Zero in Manhattan and across New York City.
DOT and NYPD worked closely together, as well as consulting other city agencies, to formulate these actions. Moving forward, the implementation of the proposed actions will require continuing and strengthening these partnerships. This will enable all aspects of pedestrian safety to continue to improve.
ACTION PLAN
38 Manhattan Pedestrian Safety Action Plan
Engineering and PlanningImplement at least 50 Vision Zero safety engineering improvements at Priority Corridors, Intersections, and Areas citywide, informed by community input at project locations
The Vision Zero Action Plan calls for safety engineering improvements citywide at 50 intersections and corridors annually. Starting with the 2015 construction season, DOT will set the goal of building 50 Vision Zero safety engineering improvements annually at the Priority Corridors, Intersections, and Areas defined in all five Borough Pedestrian Safety Action Plans. This will ensure a laser focus on the chronically high-crash locations where pedestrians are killed and severely injured, where DOT interventions will have a maximum impact. The safety engineering improvements will be informed by Borough Plan outreach findings and, as always, DOT and NYPD will work with communities to shape and develop better safety projects. Lastly, since Vision Zero ultimately means eliminating fatalities for all road users, safety engineering improvements will also include safety-focused bicycle, transit and motor vehicle projects.
Significantly expand exclusive pedestrian crossing time on all Manhattan Priority Corridors by the end of 2017
High-crash corridors for pedestrians tend to be on wide arterial streets with higher speeds and aggressively turning vehicles. DOT will address these issues by installing Leading Pedestrian Intervals (LPIs) at every feasible school crosswalk on all Manhattan Priority Corridors. The LPI is a proven method of reducing pedestrian-vehicle conflicts at high pedestrian crash locations; it is a signal timing treatment that provides pedestrian-only walk time before vehicles receive the green light.
Add exclusive pedestrian crossing time to all feasible Manhattan Priority Intersections by the end of 2017
DOT will install LPIs at every feasible Manhattan Priority Intersection by the end of 2017. As noted previously, the LPI is a signal timing treatment that provides pedestrian-only walk time before vehicles receive the green light.
Modify signal timing to reduce off-peak speeding on all feasible Manhattan Priority Corridors by the end of 2017
At off-peak times, congestion is diminished and vehicle speeds are higher, increasing the risk for pedestrian crashes as well as increasing the severity of those crashes. To better control speeds, DOT will modify off-peak signal timing on all feasible Manhattan Priority Corridors by 2017.
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ACTION PLAN
40 Manhattan Pedestrian Safety Action Plan
Install expanded speed limit signage on all Manhattan Priority Corridors in 2015
Effective November 7th, the speed limit on all unsigned streets in New York City was reduced to 25 MPH. However, streets that are signed for 30 MPH (or higher) will be evaluated on a case-by-case basis and switched to 25 MPH where feasible. DOT will evaluate all signage on Manhattan Priority Corridors in 2015 and convert these to 25 MPH where feasible. In addition, signage will be expanded so the speed limit will be posted at a higher frequency along Manhattan Priority Corridors. This will help to increase compliance with the speed limit, better educate the public about the new citywide speed limit, and make NYPD enforcement simpler and less ambiguous.
Drive community input and engagement at Manhattan Priority Corridors, Intersections, and Areas
As discussed earlier in this plan, areas in Manhattan that have the highest incidence of pedestrian fatalities and severe injuries are not always the loudest voices providing input for transportation improvements. DOT commits to reaching out to these sections of Manhattan and soliciting ground-level input from community members. This dialogue will take many forms, including full-fledged planning workshops and charettes; streamlined, mobile meetings at places where community members already gather (libraries, community centers, parks, etc.); community walk-throughs; and direct communication with elected officials and community leaders in Priority Areas. To further facilitate and institutionalize this effort, DOT will hire a dedicated staff member in their Manhattan office. This staff member will be assigned to neighborhoods that have historically been less engaged with the planning process.
Consider area-wide policies for Midtown
Midtown’s extremely dense mix of residential and commercial uses generates a highly concentrated amount of overlapping, multi-modal travel activity. The resulting congestion and nearly constant conflicts between pedestrians, motorists, buses, and delivery vehicles make Midtown safety improvements critical to achieving Vision Zero in Manhattan. DOT will investigate the feasibility of various policies, such as limiting left-turns from major two-way streets, to improve safety and circulation throughout the area.
ACTION PLAN
41Manhattan Pedestrian Safety Action Plan
Continue to expand the off-hours delivery program to reduce truck conflicts with pedestrians
In Manhattan, trucks are involved in more than twice the share of crashes resulting in pedestrian KSI compared with the city as a whole. DOT will continue to expand its off-hours delivery program. This program can help to reduce conflicts between large delivery vehicles and pedestrians by encouraging businesses to shift deliveries to overnight hours when pedestrian volumes are lower.
Coordinate with MTA to ensure bus operations contribute to a safe pedestrian environment
The MTA operates the largest bus system in the United States, with more than twice as many daily riders than the next leading system.8 Buses are an extremely important part of the city’s transportation network and vehicle mix in Manhattan, constantly operating around and interacting with pedestrians (both riders and non-riders), cyclists and other road users. DOT will work closely with the MTA to provide for a safe, efficient and effective transportation network that coexists with pedestrians and other modes, focusing on routes and stops at and around Priority Corridors and Priority Intersections, ensuring that facilities are designed and located to maximize pedestrian safety.
ACTION PLAN
42 Manhattan Pedestrian Safety Action Plan
Expand a bicycle network in Manhattan that improves safety for all road users
Vision Zero’s focus on vulnerable users—those most likely to be severely injured and killed in event of a crash—is an opportunity for a coordinated, complete streets approach to bicycle and pedestrian planning. Although there has been a marked downward trend in cyclist risk in New York in the past ten years, there were still 52 bicyclist fatalities in the city between 2011 and 2013, including 13 in Manhattan. While this plan identifies priority corridors, intersections, and areas for pedestrian safety improvements, these locations also account for 69% of cyclist KSI in Manhattan, and can represent priorities for bicycle safety as well.
Pedestrian and bicycle planning share many of the same fundamental strategies to increase safety. Both groups benefit from reductions in speeds, efforts to enforce the traffic laws that make streets safe, and comprehensive engineering solutions that better organize traffic flow and reduce conflicts. In addition, well-designed bicycle lanes perform an important traffic calming function by right-sizing streets to the needed capacity and may also include pedestrian refuges that shorten crossing distances. A recent study found that pedestrian injuries declined 22% on New York streets with protected bicycle lanes. That is why DOT will work closely with communities in Manhattan to expand a bicycle network that improves safety for all road users, including constructing an additional 5 lane miles of protected bike lanes per year.
Pedestrian injuries declined 22% on New York City streets with protected bicycle lanes, like this one on Ninth Avenue.
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Penelope
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Schenectad
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t
21 S
t
130 St
7 Av
Mor
ris A
v
Graham
Av
Bushw
ick Av
Wyckoff AvMurdock
Hollis
Av M
Waring
Brooklyn
E 53 S
t
30 Av
Wilson Av
Bushwick Av
Broadway
109 Av
Liber
ty
Av D
111 St
Fr C
apod
anno
S Conduit Av
Lefferts
Myrtle
Woodhaven
6 Av
Willets Pt
Flatbush
Flatbush
Broadway
Broadway
Ral
ph
Utic
a
168
St
21 Av
150 St
Coney Island
Coney Island
Ocean A
v
Whi
te P
lain
s
Fred
eric
k D
ougl
ass
Av L
Halsey
Stei
nway
Hoo
k C
reek
Stanley
Av Z
37 Av
39 St
20 A
v
Ralp
h
Av S
35 Av
Hillside Av
17 A
v
17 A
v
Wes
t S
t
48 St
Union Tpke
Rockaway Fwy
Rogers
Flatbush
Nostrand
New
York
Utop
ia Pkw
y
52 St
New
Utr
echt
15 A
v
15 A
v
53 St
60 St
Remsen
Remsen
149
St
149
St
18 A
v
Pitkin
Nostrand
Nostrand
31 Av
31 Av
Northern
Sutter
Merrick
Merrick
86 St
86 St
Park
Av
Av U
Av U
Mc D
onald
McD
onald
Hillside Av
Hillside Av
Lexi
ngto
n
5 Av
10 A
v
10 A
v
Mad
ison
Av
Mad
ison
Av
Park
Av
Amst
erda
m
Amst
erda
m
Amst
erda
m
Bro
adw
ay
Bro
adw
ay
Lexi
ngto
n
Lexi
ngto
n
Linden Blvd
Linden Blvd
Vandalia
Queens Blvd
Esse
x
W Kingsbridge
McG
uinness
Atlantic
Fulton
4 A
v
5 A
v
3 A
v
Flatbush
Flatbush
18 A
v
20 A
v
Bay P
kwy
Atlantic
Fulton
E 66 S
t
Roebl
ing
Bruck
ner
Jero
me
31 S
t
Steinw
ay
Northern
21 S
t
Jackson
Van
Dam
48 S
t
49 Av
58 S
t
94 St
Ditmars
Corona
108 St
Queens Blvd
Queens Blvd
Washington A
v
14 Av
College P
oint Blvd
Francis Lewis B
lvd
Northern Blvd
150
St
223
St
Spr
ing�
eld
Francis Lewis
188 St
80 St
Woodhaven
Pennsylvania
Rockaway Pkwy
Kissena
Bell
Sutphin
Rockaway Blvd
Guy R
Brew
er
King
sbrid
ge
Orchard Beach
Pennsylvania
Sprin
g�el
d
E 156 St
Northern Blvd
Chambers
William
sbrid
ge
Foster
18 Av
47 Av
Metropolitan
101 Av
Riv
ersi
de
7 Av
Nassau St
BoweryBay
TurtleCove
GowanusBay
HewlettBay
BroswereBay
Powell'sCove
GravesendBay
DeadHorseBay
East River
PelhamBay
FlushingBay
ManhassetBay
EastchesterBay
Little NeckBay
Long IslandSound
UpperNew York
Bay
LowerNew York
Bay
ErieBasin
PotCove
WestPond
EastPond
SagePond
HookCreek
PaineLake
LeedsPond
MeadowLake
ConchBasin
WillowPond
WillowLake
TurtlePond
RidderPond
PelhamLake
GlenwoodLake
OaklandLake
NortonBasin
KissenaLake
CameronLake
WhitneyLake
LakeSuccess
DecadonPond
ProspectLake
Hallet'sCove
WoodlawnLake
GrasmereLake
TibbettsLake
HuguenotLake
BeechmontLake
ConselyeasPond
HillviewReservoir
RidgewoodReservoir
Udall'sCove
BronxParkPond
UdallsMill
Pond
LittleAlleyPond
CrotonaParkPond
Jero
me
Park
Res
ervo
ir
JacquelineKennedyOnassis
Reservoir
BaisleyPond
WallaboutBay
Mill C
reek
Mott's Creek
Haw
tree Basin
Shellb
ank Basin
East Mill Basin
Grassy Bay
Rockaway Inlet
Island Channel
Hackensack River
East R
ockaw
ay In
let
Big Fishkill Channel
Grass H
asso
ck C
hannel
Eas
t R
iver
Head Of Bay
Jamaica Bay
Hud
son
Riv
er
Hud
son
Riv
er
Beach Channel
Riker's Island Channel
Hell G
ate
Mill Basin
Little Bay
Sheepshead Bay
Reynold s Channel
Atlantic Ocean
Bronx River
Alley Creek
Harlem
River
Bergen B
asin
Macy C
hannel
New
town C
reek
Horse Channel
Hendrix C
reek
Ove
rpec
k C
reek
Thur
ston
Bas
in
Old M
ill Creek
Gowanus Canal
Paerdegat Basin
Bannist
er Cree
k
Wes
tche
ster
Cre
ek
Marine Park Creek
Fresh Creek Basin
Hun
tingt
on H
arbo
r
Coney Island Creek
Butterm
ilk Channel
Big Mucks Creek
Shell Bank Creek
Som
er
ville
Bas
in
Mott Basin
Hut
chin
son
Riv
er
NE
W E
NG
LAN
D T H
RU
WA
Y
Bro
ad C
hann
el
FloydBennett
Field
LibertyStatePark
BreezyPointPark
RockawayCommunity
Park
SpringCreekPark
OceanBreezePark
BaisleyPondPark
FourSparrowMarsh
Paerdegat Basin Park
DykerBeachPark
Fresh CreekNature
Preserve
ManhattanBeachPark
Dubos PointWildlife
Sanctuary
AsserLevyPark
VernamBarbadoesPeninsula
VillageGreenPark
LincolnTerrace
Park
EibsPondPark
BetsyHeadPark
DutchBroadway
Park
Hook CreekWildlife
Sanctury
CaptainTilly Park
BroadChannelMarina
CityLinePark
VenablePark
UnionSquare
Park
WashingtonSquare Park
TompkinsSquarePark
MauricePark
MsgrMcGolrick
Park
HerbertVon King
Park
AliceAustenPark
Brant PointWildlife
Sanctuary
Brady'sPondPark
MariaHernandez
Park
IrvingSquare
Park
LocascioField
MarinePark
FortTilden
IdlewildPark
CunninghamPark
PlumbBeach
Jacob RiisPark
FortWadsworth
Frank CharlesMemorial Park
HighlandPark
BergenBeach
CanarsiePark
Silver PointCounty Park
GovernorsIsland
RockawayBeach
McGuireFields
Shore Road Park
FDR Boardwalkand Beach
Red HookRec Area
NorthWoodmere
Park
Valley StreamState Park
ParadeGround
Roy WilkinsRec Center
EllisIsland
McCarrenPark
SunsetPark
RathPark
GrantCounty Park
GreisPark
BayCounty Park
BayswaterPark
LincolnPark
Owl's HeadPark
ArthurHendrickson
Park
LibertyIsland
North ShoreEsplanade
Jamaica BayPark
RailroadPark
Mill RoadPark
SpringfieldPark
Det WilliamGunn Park
CalvertVaux Park
CoffeyPark
LindenPark
FiremensField
HoffmanIsland
DrewPark
Bath BeachPark
Broad ChannelAmerican Park
TudorPark
GeminiFields
BreukelenBallfields
Brower Park
JonesPark
St John'sPark
MaferaPark
CooperPark
RochdalePark
Von BriesenPark
FriendsField
ByrnePark
KellyPark
St AlbansPark
East RiverState Park
EastRiverPark
WingatePark
RizzutoPark
ElmhurstPark
InwoodCounty Park
McKinleyPark
GravesendPark
Det KeithWilliams Park
MarconiPark
Coney IslandCreek Park
BaysidePark
PetersField
HaggertyPark
Fort HamiltonAthletic Field
AmersfortPark
PaerdegatPark
SternbergPark
South BeachWetlands
BreiningerPark
SaratogaPark
EvergreenPark
ScarangellaPark
SwinburneIsland
Coney Island Beach & Boardwalk
Broo
kvill
e Pa
rk
JuniperValleyPark
WNYC Transmitter
Park
FortGreene
Park
AlleyPondPark
PalisadesInterstate
Park
PalisadesInterstate
Park
FerryPointPark
ArthurKill
Park
WardsIslandPark
Randall'sIslandPark
OverpeckCountyPark
TibbetsBrookPark
James BraddockNorth HudsonCounty Park
SetonFallsPark
PugsleyCreekPark
CollegePointPark
ManorhavenTown Park
WillsonsWoodsPark
HuntsWoodsPark
RiverbankStatePark
Powell'sCovePark
NorthBrotherIsland
JohnGoldenPark
FiveIslands
Park
MillPondPark
LocustPoint
Marina
Schmidt'sWoodsPark
RiversidePark
South
ConstitutionGrovePark
LarchmontManorPark
FrankGoldenPark
PershingFieldPark
GivansCreekWoods
BergenfieldBoroPark
NewBridge
Landing
LibertySkyline
Park
FrancisLewisPark
SullivanOvalPark
MadisonSquare
Park
The
Hig
h Lin
e
WilliamBirchPark
VictorKilkenField
SouthBrotherIsland
MaxwellPlacePark
LeonardGordon
Park
BarrettoPointPark
GrandCove
Marina
MarieCuriePark
ChurchSquare
Park
VinmontVeteran
Park
ConcretePlantPark
St Mary’sPark
LouisPasteur
Park
SocratesSculpture
Park
Park Of TheAmericas
WestHarlemPiers
Riverview
Esplanade
Shorehaven
KissenaPark
KissenaCorridor
Park
CrotonaPark
Sands PointCounty Park
Inwood HillPark
Kings PointTown Park
Van SaunPark
SoundviewPark
Fort TottenPark
MorrowPark
Rive
rsid
e Par
k
High
brid
ge P
ark
FortWashington
Park
Rive
rdal
e Pa
rk
Hempstead HarborCounty Park
AstoriaPark
Twin LakesCounty Park
ArgonnePark
FortTryonPark
FlintPark
GlenIslandPark
Twin Lakes Park/Nature Study Woods
FlowersPark
IshamPark
CrocheronPark
RedmondPark
Old GloryPark
Harbor IslandPark
ClaremontPark
QueensFarmPark
WindsorPark
RooseveltCommon
Little BayPark
MacKayPark
Milton VoteePark
MacneilPark
OrchardBeach
FlemingPark
Alley PondPark
PhelpsPark
HarrisPark
AndreasPark
AielloPark
GloverField
BrettPark
WashingtonPark
HuguenotPark
North HempsteadTown Park
Whitney PondCounty Park
DavenportPark
TremontPark
FlushingFields
BownePark
Leeds PondCounty Preserve
BrushPark
CityPark
HudsonPark
PeltonPark
Hackensack RiverCounty Park
LakeviewField
WeltyPark
JohnsonPark
EwenPark
Laurel HillPark
TerhunePark
GantryPlazaStatePark
HerrickPark
Oscar EOslenPark
RaineyPark
MemorialField
MullalyPark
HarveyPark
ShorePark
WilliamsbridgeOval
MemorialPark
St JamesPark
TokalokaPark
WillisPark
SylvanPark
BaysideFields
Grist Mill PondCounty Preserve
HamiltonPark
EastchesterPark
Manhasset ValleyCounty Park
BryantPark
QueensbridgePark
FayPark
D'OnofrioPark
Clinton G MartinPark
War MemorialPark
WaterfrontPark
StaibPark
HommocksPark
AndrusPark
TryonPark
StarlightPark
LennonPark
ColumbusPark
HartleyPark
Stepping StoneTown Park
AmmanPark
TennisCourts
GrantPark
CoynePark
SunnybrookPark
SutherlandPark
FeeneyPark
ClearviewPark
KennedyPark
Wolfs LanePark
SunnysidePark
LorenzenPark
BreganoPark
SinatraPark
ConstitutionPark
O'BoylePark
WeehawkenStadium
MartinsField
StephensonPark
CochranPark
MillRockPark
Schu
rz P
ark
Flower HillCounty Park
AmbrosiniField
Castle HillPark
Little FerryBoro Park
Richman(Echo)Park
MorleyCounty Park
RiverviewPark
RalphDeMarco
Park
TrevorPark
Davids’Island
Mor
ning
side P
ark
Huds
on R
iver P
ark
CentralPark
PelhamBayPark
ForestPark
VanCortlandt
Park
BronxPark
Flushing MeadowsCorona Park
ProspectPark
Gateway
National R
ecreat
ion Area
Jamaica BayWildlife Refuge
Gateway National Recreation Area
Manhattan Detail from 2014 New York City Bike Map
Protected Paths
Bike Lanes
Shared Lanes
ACTION PLAN
43Manhattan Pedestrian Safety Action Plan
Proactively design for pedestrian safety in high-growth areas in Manhattan including locations in the Housing New York plan
In his 2014 housing plan—entitled Housing New York: A Five-Borough, Ten-Year Plan—Mayor de Blasio has laid out actions to spur affordable housing by increasing density, rezoning neighborhoods, redeveloping underutilized land, adaptively reusing buildings and space, and a host of other tools. Since these new housing locations will often be on vacant and underused sites, they may lack sufficient pedestrian safety infrastructure, and pedestrian activity (and pedestrian crashes) may presently be low.
The City will be proactive and will develop pedestrian safety enhancements around housing development locations. DOT will work with the Department of Housing Preservation and Development (HPD), the Department of City Planning (DCP), the School Construction Authority (SCA) and the Mayor’s Office to ensure that housing plan projects incorporate the highest-quality modern standards in pedestrian safety. Development at these locations is an opportunity for New York City to develop streets that are even safer than the status quo.
A notable example of a high-growth area currently under development in Manhattan is Hudson Yards, which is expected to introduce a large amount of new activity to the area west of Midtown.
ACTION PLAN
44 Manhattan Pedestrian Safety Action Plan
EnforcementThe Vision Zero Action Plan calls for NYPD and DOT to develop a data-driven, citywide strategy for the enforcement of traffic safety violations. This plan will guide that strategy in Manhattan.
Implement the majority of speed cameras at Priority Corridors, Intersections, and Areas
The New York State Legislature recently approved the use of speed cameras at 140 total locations near schools in all five boroughs. In Manhattan, DOT will deploy those cameras by schools in and around Priority Corridors, Intersections, and Areas, unless a higher-crash location is also feasible. As always, speed cameras will only be deployed in accordance with their enabling legislation.
Focus enforcement and deploy dedicated resources to Manhattan NYPD precincts that overlap substantially with Priority Areas
Just as NYPD regularly targets chronically high-crime areas, NYPD will take the same tightly focused approach to chronically high-crash areas. NYPD will focus traffic enforcement at precincts in Priority Areas and provide additional dedicated resources to handle this stepped-up enforcement.
Prioritize targeted enforcement at all Manhattan Priority Corridors, Intersections, and Areas annually
Prioritize enforcement along all 57 miles of Manhattan Priority CorridorsPrioritize enforcement at all 60 Manhattan Priority Intersections. Prioritize enforcement within all 6 square miles of Manhattan Priority Areas.
To further inform enforcement efforts, DOT will provide detailed crash analyses of Manhattan Priority Corridors, Intersections, and Areas to NYPD precincts. Enforcement will focus tightly on infractions that are particularly threatening to pedestrians, such as speeding and failure to yield.
Similar to crime data, effective evaluation of enforcement data must be conducted geographically (i.e., by street, intersection, or address). Currently, NYPD tracks and monitors activity at “Collision Prone Locations,” which are established using accumulated collision data. On the local level, each precinct conducts extensive analysis and mapping of their enforcement efforts in regards to collision reduction, particularly at Collision Prone Locations. These efforts are further scrutinized at the Department’s TrafficStat forums, wherein the precincts’ Executive Officers and Traffic Safety Teams are called upon to provide in-depth analysis of their traffic safety programs and enforcement efforts. In 2015, the NYPD plans to launch a major technological upgrade to its traffic analysis capabilities which will allow a more in-depth review, tracking, and accounting of collisions and enforcement in Brooklyn’s Priority Corridors, Intersections, and Areas.
ACTION PLAN
45Manhattan Pedestrian Safety Action Plan
Focus failure-to-yield enforcement on nighttime hours (9pm to midnight)
Since the nighttime accounts for a greater share of pedestrian fatalities in Manhattan, NYPD will concentrate enforcement during this time period. Enforcement will focus tightly on infractions that are particularly threatening to pedestrians such as failure to yield.
Initiate a series of targeted truck enforcement blitzes to reduce failure to yield and keep large trucks on truck routes
Due to the special concern trucks pose for pedestrian safety in Manhattan, DOT and NYPD will develop and launch a series of enforcement campaigns in 2015 designed to target truck operators who are not utilizing designated truck routes, driving unpermitted oversized trucks, or who fail to yield properly to pedestrians.
ACTION PLAN
46 Manhattan Pedestrian Safety Action Plan
Education and Awareness CampaignsTarget child and senior safety education at Manhattan Priority Corridors and Priority Areas
The Vision Zero Action Plan calls for DOT to make effective, age-appropriate safety curricula available to schools throughout the City. This Borough Action Plan will guide that strategy in Manhattan; DOT’s Safety Education team will focus their programs at or near Priority Corridors, Intersections, and Areas with a high incidence of child pedestrian injury. Safety Educators will work with schools to deliver comprehensive lessons to all members of the school community as well as utilize Manhattan Safety City, which is a traffic safety program for children that uses a simulated city street. All Vision Zero outreach and education to senior citizens will also be conducted within the Priority Areas and/or near Priority Corridors. In addition, hands-on safety demonstrations such as car safety seat checks, free helmet fittings and giveaways, anti-DWI information sessions, and Saturday table seminars will be made available through Manhattan councilmembers and community groups.
Target Street Team outreach at Manhattan Priority Corridors, Intersections, and Areas
As directed by the Vision Zero Action Plan, NYPD and DOT have been conducting intensive street-level outreach on safety issues and traffic laws. This Borough Pedestrian Safety Action Plan will further guide those efforts, as all future street-level outreach in Manhattan will be conducted along Priority Corridors, at Priority Intersections, or within Priority Areas. Locations will be further prioritized based on pedestrian volumes (for efficient outreach) and by historically problematic locations identified by local communities.
REFERENCES
ENDNOTES
PHOTO CREDITSAll photos © NYCDOT unless noted below:
Cover John Fraissinet
Page 6 flickr.com: See-ming Lee (seeminglee)
Page 12 flickr.com: Michael Condouris (condour): bottom image
Page 22 flickr.com: W. W. Watson (boortz47): top image
Page 24 flickr.com: Bernard Polet (muchadoaboutnothing): top image
Page 24 flickr.com: Robyn Lee (roboppy): bottom image
Page 30 flickr.com: Liz Patek (lizpatek)
Page 41 flickr.com: David Mackenzie (lyrislite)
ACKNOWLEDGEMENTS
American Community Survey. 2012. 2012 1-Year Estimates, Detailed Tables. Washington, DC: United States Census Bureau.
American Community Survey. 2013. 2009-2013 5-Year Estimates, Detailed Tables. Washington, DC: United States Census Bureau.
New York State Department of Transportation/New York State Department of Motor Vehicles. Accident Database, 2009-2013. Albany, NY: NYSDOT/NYSDMV
New York State Department of Transportation/New York State Department of Motor Vehicles. Reconciled Fatality Database, 2011-2013. Albany, NY: NYSDOT/NYSDMV
New York City Transit: Transit Boardings by Time of Day. New York, NY: MTA/NYCT
1 National Highway Traffic Safety Administration, Traffic Safety Facts, 2012 Data. http://www-nrd.nhtsa.dot.gov/Pubs/811888.pdf2 Vasilogambros, Matt. “Manhattan’s and Washington’s Populations Nearly Double Every Day With Commuters.” National Journal. 22 May, 2014. http://www.nationaljournal.com/next-economy/big-questions/manhattan-s-and-washington-s-populations-nearly-double-every-day-with-commuters-201405223 Data sources accessed 12-01-2014, killed or severely injured data includes only crashed that can be mapped4 60% decline in fatalities based on change in 3-year averages (1985-2013) 5 Borough/county of residence for pedestrian fatalities, 2009-2011, provided by NYC Department of Health & Mental Hygiene.6 CHEKPEDS, A Community Vision for 9th Avenue, May 2007.7 NYC DOT, Green Light for Midtown, January 2010.8 American Public Transportation Association, Quarterly Ridership Statistics, Third Quarter 2014. http://www.apta.com/resources/statistics/Pages/ridershipreport.aspx
This report was prepared by Rob Viola and Seth Hostetter (NYCDOT Office of Research, Implementation & Safety) with consulting support provided by Vincent Riscica, Andrew Kay, and Harrison Peck (Ove Arup and Partners).
New York City Department of TransportationPolly Trottenberg, CommissionerLori Ardito, First Deputy CommissionerRyan Russo, Deputy Commissioner, Transportation Planning & ManagementAnn Marie Doherty, Senior Director, Office of Research, Implementation & Safety Seth Hostetter, Office of Research, Implementation & SafetyRob Viola, Office of Research, Implementation & Safety
Joshua Benson, Acting Assistant Commissioner, Street Improvement ProjectsMargaret Forgione, Manhattan Borough CommissionerLuis Sanchez, Lower Manhattan Borough CommissionerKim Wiley-Schwartz, Assistant Commissioner, Education and OutreachIlona Lubman, Ph. D., Executive Director, Office of Safety EducationMichelle Kaucic, Director of Strategic Communications, Commissioner’s OfficeKessia De Leo, Office of Research, Implementation & SafetyArthur Getman, Office of Research, Implementation & SafetyJesse Mintz-Roth, Office of Research, Implementation & Safety
Suggested CitationViola, R, Hostetter, S, Riscica, V, Kay, A, and Peck, H. Manhattan Pedestrian Safety Action Plan. New York City Department of Transportation, January 2015.
New York City Police DepartmentWilliam Bratton, Police CommissionerChief Thomas Chan, Transportation BureauDeputy Chief John Cassidy, Transportation BureauInspector Dennis Fulton, Transportation Bureau
Appendix A
DOT identified 17 Priority Corridors encompassing 50% of Manhattan’s total pedestrian KSI and representing 56 miles (11%) of Manhattan’s total street network:
ManhattanPriority Corridors
*Nearest cross street, corridor ends at dead-end.
Street Name From ToPed
Fatalities (2009-2013)
Ped KSI (2009-2013)
MilesPed KSI per mile
(2009-2013)
42 St FDR Dr 12 Av 1 50 2.0 25.5
8 Av Hudson St Columbus Cir 4 58 2.5 23.3
Canal St E Broadway West St 5 32 1.5 21.9
14 St FDR Dr 11 Av 3 44 2.2 20.0
Houston St FDR Dr West St 2 37 2.0 18.2
Av Of The Americas Church St Central Park S 5 68 3.8 18.1
23 St Av C 11 Av 4 34 1.9 17.7
3 Av Cooper Sq E 128 St 8 106 6.0 17.6
34 St FDR Dr 12 Av 2 33 2.0 16.8
2 Av Houston St Harlem River Dr 9 96 6.4 15.0
Adam C Powell Blvd Central Park N W 155 St 9 35 2.4 14.7
7 Av W 11 St Central Park S 1 35 2.4 14.6
125 St Henry Hudson Pkwy 1 Av 3 30 2.1 14.2
Broadway [north leg] Columbus Cir Broadway Br 18 118 8.4 14.0
1 Av Houston St E 127 St 9 88 6.3 13.9
57 St 12 Av FDR Dr 4 28 2.0 13.7
9 Av Gansevoort St Columbus Av 5 31 2.4 13.2
Appendix B
Intersection Ped KSI (2009-2013)
Ped Fatalities(2009-2013)
W 125 St & Adam C Powell Blvd
6 0
2 Av & E 14 St 6 0
W 40 St & 8 Av 6 1
Mn Br Appr & Bowery & Canal St
6 1
W 42 St & 8 Av 5 0
W 42 St & 9 Av 5 0
W Houston St & Varick St 5 0
W 14 St & Av Of The Americas 5 0
W 57 St & 10 Av 5 1
E Houston St & Allen St & 1 Av 5 0
Canal St & Allen St 5 0
E Houston St & Clinton St & Av B
5 1
7 Av S & Bleecker St & Barrow St
5 0
W 162 St & Broadway 5 0
E 75 St & 1 Av 5 0
3 Av & E 57 St 4 0
2 Av & E 42 St 4 0
W 23 St & Av Of The Americas 4 0
7 Av & W 14 St 4 0
Lenox Av & W 116 St 4 0
14 St Loop & E 14 St & Av A 4 1
W 145 St & Adam C Powell Blvd
4 3
W 135 St & Broadway 4 0
DOT identified 66 Priority Intersections in Manhattan, which cumulatively encompass 15% of the borough’s total pedestrian KSI and 2% of all its intersections:*
ManhattanPriority Intersections
Intersection Ped KSI (2009-2013)
Ped Fatalities(2009-2013)
W 106 St & Broadway 4 1
Madison Av & E 34 St 4 1
W 72 St & Broadway 4 1
Frederick Douglass Blvd & W 129 St
4 0
7 Av & W 34 St 3 0
1 Av & E 14 St 3 0
W 125 St & Amsterdam Av 3 0
E 23 St & 1 Av 3 0
W 34 St & Broadway & Av Of The Americas
3 0
Park Av & E 125 St 3 0
3 Av & E 34 St 3 0
Lexington Av & E 86 St 3 0
E 62 St & 1 Av 3 0
W 57 St & 8 Av 3 0
W 42 St & Av Of The Americas 3 0
W 14 St & 5 Av & E 14 St 3 0
2 Av & E 53 St 3 1
W 86 St & Broadway 3 0
W 158 St & Broadway 3 0
7 Av & W 45 St & Broadway 3 0
Delancey St & Essex St 3 2
E 34 St & 1 Av 3 0
Park Av S & E 23 St 3 0
2 Av & E 79 St 3 0
W 42 St & Broadway 3 0
*To select a set of Priority Intersections that account for approximately 15% of pedestrian KSI, a “tiebreaker” system was necessary. To break the tie amongst intersections with three pedestrian KSI, a cut-off at four pedestrian injuries was used. Intersections that had three pedestrian KSI and four or more pedestrian injuries were included; intersections with less pedestrian injuries were excluded.
Intersection Ped KSI (2009-2013)
Ped Fatalities(2009-2013)
W 42 St & 11 Av 3 0
Madison Av & E 116 St 3 0
Lexington Av & E 23 St 3 0
W 57 St & Av Of The Americas 3 1
3 Av & Cooper Sq & St Mark's Pl
3 0
W 24 St & 8 Av 3 1
Lafayette St & Spring St & Cleveland Pl
3 0
Center Dr & Central Park S & Av Of The Americas
3 0
W 71 St & Broadway & Amsterdam Av
3 1
W 155 St & St Nicholas Pl & Harlem River Driveway
3 0
Ft Washington Av & W 159 St & Broadway
3 0
2 Av & E 45 St 3 0
W 157 St & Broadway 3 0
W 47 St & Av Of The Americas 3 1
W 133 St & Amsterdam Av 3 0
W 51 St & 8 Av 3 0
W 164 St & Broadway 3 1
West St & Albany St & Bk Battery Tun Appr
3 1
ManhattanPriority Intersections
Appendix B (Cont’d)
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