Life in the Bike Lane Submitted by: Nov 7, 1994 >From American City and County Magazine 10/94 Life in the Bike Lane A recent report points out how cities and counties can help makes wheels and feet viable forms of alternative transportation. By David Feske In the health-conscious '90s, walkers, joggers and bicyclists have become commonplace on America's streets, but when it is time to go to work or pick up a few things at the store, most Americans still jump in their cars. Cities are looking to change that, however, in an effort to meet Clean Air Act standards and financially keep pace with road maintenance and construction projects. A recent report by the U.S. Department of Transportation (DOT) - The National Bicycling and Walking Study: Transportation Choices for a Changing America - offers communities information on how to plan and develop a pedestrian and bicycle-friendly environment. According to the report, most communities can create successful programs by building on existing recreational and transportation infrastructure. Issued on Earth Day 1994, the report is the result of a study commissioned by DOT about enhancing travel options for bicycling and walking to meet two main goals: doubling the current percentage (from 7.9 percent to 15.8 percent) of total trips made by bicycling and walking for transportation purposes and reducing by 10 percent the number of bicyclists and pedestrians killed or injured in traffic accidents. Accomplishing these goals, however, means that changes must take place at the federal, state and local level to make bicycling and walking viable and attractive transportation alternatives. Program Organization While federal and state programs provide the framework for these changes, the facilities are, for the most part, planned and implemented at the local level. Cities like Seattle, Portland, Ore.; Boulder, Colo.; Gainesville, Fla., and Palo Alto and Davis, Calif., have discovered a working formula to increase levels of bicycling and walking. Their local action plans include: organization of a bicycle/pedestrian program; planning and construction of needed facilities; promotion of bicycling and walking; education for bicyclists, pedestrians and motorists; and enforcement of laws and regulations. The goal of establishing a successful pedestrian/bicycle program is best achieved through a comprehensive transportation plan in which pedestrian and bicycle concerns are fully integrated in local planning, design and construction of transportation facilities. Gainesville's Traffic Engineering Department, for example, hopes its transportation plan will stall massive road building projects, at least for a while. "Our long-range plan calls for widening roads as a way of meeting transportation demands, but we have maintained the idea that if we promote alternative transit modes, we might not have to build them as quickly, or we can exist with four lanes rather than six," says Linda Dixon, the city's bicycle/pedestrian coordinator. "That is a neighborhood, environmentally- and fiscally-responsible approach." Specific steps communities may take to initiate, organize and launch a bicycle and pedestrian program include establishment of a full-time coordinator and staff; encouragement of grass- roots initiatives; development of coalitions with local groups; review, modification and expansion of existing policies; adoption of efficient, non-motorized compatible land-use patterns and zoning requirements; and development and/or adaptation of compatible urban design guidelines. Under ISTEA, states are required to appoint a bicycle and pedestrian coordinator, but no mandate to establish that position exists at the local level. Nevertheless, many communities have already developed or have begun developing the necessary strategies to foster bicycling and walking. In fact, eight of the top 10 cities for bicycling, as rated by Bicycling magazine, have bicycling program coordinators. Boulder, for example, has a bicycle/pedestrian program coordinator and a safety educator under its Department of Alternative Transportation. GO Boulder, created in 1989 by the city council, is working to reduce single occupancy vehicle trips 15 percent by the year 2010. Key to this goal is strengthening the bicycle and pedestrian program. "With a full-time program, a city ends up with someone dedicated to the project. If I was part-time, a lot of the issues would never be communicated," says Pam Fortner, bicycle/pedestrian educator for GO Boulder. "I work extensively with traffic engineers and facility designers." During a road construction project this summer, planners and traffic engineers explained possible design options and asked for Fortner's input. "This would not happen if there was not a full-time person," she says. Dixon agrees that there must be an advocate to work within the local agencies. "Bicycle and pedestrian facility design is a specialized area that most engineers do not have a strong back-ground in." In addition, a coordinator can give citizens an outlet to voice their concerns and provide them with information and safety programs, she says.According to the study, an infrastructure of supportive professionals within government agencies, including engineers and planners who routinely incorporate bicyclist- and pedestrian-friendly design features into relevant projects, is a critical element in local implementation. Coordination between tansportation offices and a broad spectrum of other government agencies ensures that the needs of bicyclists and pedestrians are addressed not only during project development but in project improvement and maintenance as well. Advisory Committees A bicycle and/or pedestrian advisory committee comprised of both professional staff and citizens having expertise in bicycling and walking issues can be an effective tool for generating response to non-motorized transportation needs. Decisions and input of an advisory committee are likely to reflect a balance between the enthusiasm of civilian members and the pragmatism of government employees. In the last 20 years, the bicycling community has made great strides through grass-roots activities involving bicycling advisory committees. Gainesville's program arose from such a group. In the early 1980s, a local PTA was concerned about the safety of children who bicycled and walked to and from school. As a result of their lobbying efforts, facilities were put in place. Soon after, the group realized there was a similar demand for facilities by adults and college students. The group eventually turned into a city council-appointed Citizen Advisory Board. "The advisory board is the spark that got the bicycle/pedestrian program in place. It also got money from the Florida Department of Transportation to fund a coordinator," says Dixon. "It has been the watchdog for the community." The city now has more than 77 miles of bike lanes. Palo Alto also has a bicycle advisory committee, which meets with the city's engineering department monthly to review projects and hear input from the public about bicycling in the community. "It is helpful to get the community involved - from bicyclist activists to employers and schools," says Gayle Likens, a senior planner in the Transportation Division of the Department of Engineering. Similar pedestrian advocacy groups are just starting to emerge. Such grass-roots initiatives serve to generate enthusiasm and cultivate community support. For a city without an advocacy group, there is still a wealth of existing local community resources available to a local bicycle/pedestrian coordinator. Bicycle organizations include the Bicycle Federation of America, American Youth Hostels, Adventure Cycling, Bicycle Institute of America, Bikecentennial, Canadian Cycling Association, League of American Bicyclists, United States Cycling Federation and Women's Cycling Network. Walking-related organizations include the U.S. Walking Association, the Pedestrian Federation of America, and Prevention Magazine's Walking Club. Additionally, local bicycle and walking clubs should be considered. Keeping Up with standards Standards and guidelines for designing local streets and sidewalks to accommodate bicycle and pedestrian travel are outlined in the 1991 Guide for the Development of Bicycle Facilities by the American Association of State Highway and Transportation Officials. Roadway design manuals should include considerations for the non-motorized traveler. Local land-use configurations are key to the number of trips that can be made by walking or bicycling. A review of local land-use plans and zoning ordinances should be conducted by local planning officials and compared to non-motorized travel needs. Changes to zoning ordinances should be proposed to allow for safe travel by bicycling or walking. Finally, local zoning officials should be involved in the review of regulations on land development to ensure that they are bicycle-and pedestrian-friendly. Gainesville passed a bicycle parking facility ordinance in 1987. "It seems like a very small piece of the puzzle, but having parking facilities built into land development code is an important part. Secure bicycle parking may encourage people," Dixon says. The city also has zoning ordinances that prevent new roads from being built without bike lanes. Local governments can take additional steps in fostering a more balanced transportation system by encouraging mixed-use zones, affordable housing near places of employment and limiting motor-vehicle parking facilities. The Boulder City Council has vowed not to add any new parking spaces or roads to its highly-congested downtown area. Instead, the city is developing a shuttle bus system that will reach downtown, the University of Colorado campus and a mall outside town. "People will be able to park in outlying areas and reach important places in Boulder," Fortner says. "We figure this will take a lot of pressure off of downtown and be perfect for people who are not able to ride a bike everywhere. Facilities Today's emphasis on bicycle facilities focuses on providing a combination of ample road space to safely accommodate bicyclists and motorists side-by-side as well as separate multi-use trails exclusively for non-motorized use. Usable facilities must be in place in order for bicycling and walking to become viable alternatives. Common facilities for bicyclists include bicycle lanes, wide curb lanes and paved shoulders, bicycle paths separated from the roadway, bicycle-sensitive detectors at signalized intersections, bicycle parking and bicycle safe drainage grates. Pedestrian facilities include sidewalks and walkways, grade-separated crossings, pedestrian malls and pedestrian signals. A bicyclist- and pedestrian-friendly transportation network provides increased travel options and supportive environments for bicycling and walking while encouraging and enforcing responsible behavior among bicyclists, pedestrians and motorists. But facilities include more than pavement; bicycle parking, pedestrian crossing signals, curb cuts and ramps, adequate lighting and showers at work are other necessities. Palo Alto, for example, has a zoning ordinance that requires employers in the private sector to provide bicycle amenities such as bicycle parking and shower facilities. The measure was implemented primarily for bicyclists, but the facilities are also being used by people who exercise during lunch or at other times of the day, Likens says. Being a mature city without a lot of current expansion, Palo Alto is looking for ways to better accommodate bicyclists in the existing street network. Traffic signals, for example, can be a hindrance to bicyclists, Likens says. Lights are often not designed to detect bicycles, and they are not properly timed to allow the bicyclist to safely clear an intersection. "Lights are timed for vehicles, which can accelerate much faster than bicycles," she says. The city has also begun implementing bicycle boulevards, which are secondary streets designed primarily for bicyclists, although cars are allowed to use them for short distances. The boulevards almost become bicycle expressways, with reduced stopping and increased impediments to vehicle travel. "This is a way to fine tune the street system to bicyclists," Likens says. "There are cars on them, but they cannot go straight through." The city is also trying to fill gaps in the system and update older facilities that do not meet current requirements. Boulder has three types of bicycling facilities: off-street paths, bike lanes and bike routes. Probably used most heavily, the Boulder Creek Path, for example, connects Boulder from east to west. It is both a recreation path and a transportation system that goes under roads and does not bring users in contact with motor vehicles at all. Bike lanes are areas marked off on a street that are restricted to bikes only. "I have found through my analysis of accidents that bike-laned streets do not have many accidents," Fortner says. "This is probably because bikes and cars are so much closer together on non-laned streets." Bike routes, on the other hand, are alternative roads that help keep bikers off crowded and potentially unsafe arterials. These routes are usually located on quiet streets and are often used to connect facilities. They are designated by signs. Education Education is the key to expanding bicycle and pedestrian programs. A community cannot properly use its facilities if the citizens are not aware of appropriate safety precautions, of laws for bicyclists and pedestrians and of what facilities are available. "When we build a facility, it is important that people know how to use it correctly," Fortner says. "This is how education supports facilities. Bikers should know to use roads that have bike lanes and less traffic." Coordinators should conduct educational presentations for schools, youth groups and other community groups and organize biking events to increase awareness. Data Collection In order to develop measurable objectives, justify projects, track trends and measure success, it is crucial that data be collected. User surveys can reveal public opinions regarding preferred places to ride or walk, trip purposes, concerns and attitudes with respect to non-motorized and motorized travel. Also, bike and pedestrian counts should be made on many of the streets and highways where routine traffic counts are taken, and a list of barriers, potential hazards and accidents should be compiled to determine where improvements are needed. Most bicycle travel takes place on streets and highways, but the construction of special facilities may encourage bicycling and walking. Green-way corridors and related trails can also help promote efficient land use and development, control urban growth, create buffer zones and ensure open space while heightening public sensitivity to the natural environment. Financing a Program Federal legislation such as ISTEA, the Clean Air Act amendments and the Americans with Disabilities Act provides new opportunities to incorporate bicyclist and pedestrian interests into transportation and other planning programs. Cooperation between various planning organizations and the realization that a multimodal and integrated transportation system is a necessary component of a changing society are driven by such legislation. Local governments should work with metropolitan planning organizations and state DOTs to discuss funding opportunities under ISTEA. Specifically, bicycling and walking projects may be funded by the National Highway System, Surface Transportation Program, including Transportation Enhancement Activities allocations, Congestion Mitigation and Air Quality Improvement Program, Scenic Byways Program, Federal Lands Highway and the National Recreational Trails Organization. In addition, pedestrian and bicyclist safety are priority areas subject to expedited approval for Section 402 highway safety program funding. Under ISTEA, states and localities have a greater opportunity to develop more bicycling and walking projects. Many funding possibilities exist, and much can be accomplished by agencies other than the DOT, including environmental, health, recreation and educational agencies and departments. Private corporations may also offer assistance. Additional sources of local funds include transportation department funds, sales taxes, open space bonds, mitigation measures (when developers are charged to mitigate negative project impacts), developer dedications (which require developers to construct bicycling and walking facilities as a condition for allowing a project to proceed), restorations in which developers restore rights-of-way for non-motorized users, public agency funds, motor vehicle taxes and street utility taxes like Seattle's. Local governments can take a major step in fostering a more balanced transportation system by encouraging mixed-use zones and compact land-use development. The study insists that encouraging walking and bicycling can create a changed transportation system that offers not only choices among travel modes for specific trips, but, more importantly, presents these options as real choices that meet the needs of individuals and society as a whole. This article was written by Dave Feske, HDR Engineering, Alexandria, Va. Copies of the DOT report may be obtained from the General Printing Office for $12.00. Contact Barbara McMillen at the Federal Highway Administration, (202) 366-4634.