HomeMy WebLinkAboutAgenda - 04-09-2013 - 5h 1
ORANGE COUNTY
BOARD OF COMMISSIONERS
ACTION AGENDA ITEM ABSTRACT
Meeting Date: April 9, 2013
Action Agenda
Item No. 5-h
SUBJECT: Safe Routes to School Action Plan Overview and Proposed Schedule for Initial
Adoption Steps
DEPARTMENT: Planning and Inspections PUBLIC HEARING: (Y/N) No
ATTACHMENT(S): INFORMATION CONTACT:
1. Amendment Form Abigaile Pittman, Transportation/Land Use
2. Overview of Draft SRTS Action Plan Planner, 245-2567
Tom Altieri, Comprehensive Planning
Supervisor, 245-2579
Craig Benedict, Planning Director, 245-2592
PURPOSE: To authorize staff to proceed with initial Safe Routes to School (SRTS) Action Plan
adoption steps according to the Amendment form for the SRTS Action Plan (Attachment 1).
BACKGROUND: The North Carolina SRTS Program works with schools, local governments
and agencies, advocacy and non-profit organizations, and public health professionals at a
grassroots level to identify improvements that can help make bicycling and walking to and from
school a safe and healthy transportation alternative. Orange County received a Safe Routes to
School (SRST) Action Plan Service Award in July 2008 for planning assistance to prepare an
Action Plan for Grady A. Brown Elementary School, Cameron Park Elementary School and
C.W. Stanford Middle School.
In 2009 the North Carolina Department of Transportation (NCDOT) contracted Greenways,
Incorporated and Greene Transportation Solutions to work with County staff, local agency
representatives, School Team leaders and principals of the three schools to identify non-
motorized infrastructure improvements that enhance safety for walking and bicycling.
The Plan development process included a visioning and goals session and map working
session with the project staff, steering committee, and consultants. This was followed by
comprehensive fieldwork and a public workshop that sought input from residents, including
parents, teachers, principals, children, Town of Hillsborough staff, and Orange County staff.
This input and analysis led to the development of a draft plan that consisted of an analysis of
existing conditions, and recommendations in the program's framework of engineering,
education, encouragement, enforcement, and evaluation (the essential `5 E's' of the program).
The draft Plan was reviewed by the NCDOT Bicycle and Pedestrian Division and a final draft
was completed and returned to the Planning Staff in December 2012.
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Staff has been reviewing the final draft and developing recommended initial actions for
adoption.
Orange County Schools, the Town of Hillsborough, and Orange County will be asked to adopt
the Plan. Following adoption, the next recommended step will be to establish a SRTS Action
Plan Advisory Committee (APAC) that would be responsible for advocating plan implementation
and assist with programming and grant writing, evaluating plan progress, and assessing plan
priorities.
Although more detail will be coming to the Board, staff's initial suggestion is that the SRTS
APAC be a sub-committee of the OUTBoard, supplemented by additional staff from other
agencies/jurisdictions as needed.
In follow-up to earlier questions from Board members regarding whether the SRTS Program will
allow projects for high schools, staff has learned that the NCDOT SRTS Program will fund only
those activities that specifically plan for improvements and programs that promote safe, active
travel to K-8 schools. However the benefit of a project does not have to be exclusively for a K-8
school addressed by the Plan. While project inclusion in the adopted plan is encouraged, not
all projects must be included in the adopted SRTS plan. Projects from the Plan with multiple
purposes/greater impact are favored. If, for example, a proposed project for CW Stanford
Middle School met the objectives of the SRTS program, but also happened to provide a benefit
to the Orange High School, that is acceptable and even encouraged.
Attachment 1, for Board review and approval, is an Amendment form outlining the rationale,
process, and implications of the adoption of the SRTS Action Plan.
Attachment 2 is an overview of the SRTS Action Plan, for reference.
FINANCIAL IMPACT: Other than staff time, there is no financial impact associated with
receiving, considering and authorizing the staff to proceed with initial adoption steps for the
SRTS Action Plan. This work will be completed by existing Planning staff in the Department's
Comprehensive Planning Division. Following adoption, Plan implementation will also require
assistance from the NCDOT SRTS program, the Orange County Schools staff, and the Town of
Hillsborough staff.
RECOMMENDATION(S): The Manager recommends the Board:
1. Approve the attached Amendment form (Attachment 1) for the SRTS Action Plan; and
2. Direct Planning staff to proceed accordingly.
ATTACHMENT 1 3
COMPREHENSIVE PLAN/ FUTURE LAND USE MAP
AND
UNIFIED DEVELOPMENT ORDINANCE (UDO)
AMENDMENTOUTLINE
A. AMENDMENT TYPE
Map Amendments
❑ Land Use Element Map-
From- ---
To:
El Zoning Zoning Map:From:-To:---
❑ Other:
Text Amendments
❑ Comprehensive Plan Text-
..............
❑ UDO Text:
❑UDO General Text Changes
❑UDO Development Standards
❑UDO Development Approval Processes
❑ Other: Safe Routes to School (SRTS) Action Plan
B. RATIONALE
1. Purpose/Mission
The purpose of the SRTS program is o.
•
Enable and encourage children, including those with disabilities, to walk and
bicycle to school;
• Make bicycling and walking to school a safer and more appealing transportation
alternative, thereby encouraging a healthy and active lifestyle from an early age;
and
• Facilitate the planning, development, and implementation of projects and
activities that will improve safety and reduce traffic, fuel consumption, and air
pollution in the vicinity of schools.
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2. Analysis
The required analysis will be part of the subsequent evaluation and approval of
project implementation actions.
3. Comprehensive Plan Linkage (i.e. Principles, Goals and Objectives)
.Chapter 9- Transportation Element Goals 1, 2, 3 and 4 and their supporting
objectives address a multi-modal transportation system, promotion of public health
and safety, and transportation planning that serves development. Several objectives
specifically speak to the provision of bikeways and walkways.
4. New Statutes and Rules
N/A
C. PROCESS
1. TIMEFRAME/MILESTONES/DEADLINES
a. BOCC Authorization to Proceed with Initial Adoption Steps
April 9, 2013
b. Joint Staff Meeting with Orange County Schools and the Town of Hillsborough
April 2013
c. Meet with Orange County School Board and the Town Board of Hillsborough to
Brief and Receive Approval for Initial SRTS Adoption Steps
May 28, 2013 —...Oran ge County School Board Meeting
June 10, 2013 — Town of Hillsborough Town Board Meeting
d. Meetings for SRTS Action Plan Adoption; and Establishment of SRTS Action Plan
Advisory Committee (APAC)
Dates undetermined at present- to be discussed and scheduled following initial
adoption steps and input from Orange County Schools and the Town of
Hillsborough.
2. PUBLIC INVOLVEMENT PROGRAM.
The Plan development process included a public workshop completed in April 2008
that sought input from residents, including parents, teachers, principals, children,
Town of Hillsborough staff, and Orange County staff.
a. Planning Board Review- N/A
b. Advisory Boards:
Not at this time, however, the staff's initial thought is that the future SRTS
Advisory Committee be a sub-committee of the OUTBoard, supplemented by
additional staff where needed.
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c. Local Government Review:
Town of Hillsborough, as noted in
Section 1. above
d. Notice Requirements
Not required for these initial adoption steps.
e. Outreach:
❑ General Public: The Plan development process included a public workshop
completed in April 2008 that sought input from residents,
including parents, teachers, principals, children, Town of
Hillsborough staff, and Orange County staff.
❑ Small Area Plan Workgroup: N/A
® Other: Joint staff meeting with Orange County Schools and the Town of
Hillsborough; and meetings with the Orange County School Board
and the Town Board of Hillsborough
3. FISCAL IMPACT
Other than staff time there is no financial impact associated with receiving,
g,
considering and authorizing the staff to proceed with initial adoption steps for the
SRTS Action Plan.
D. AMENDMENT IMPLICATIONS
.....................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................
N/A
......................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................
E. SPECIFIC AMENDMENT LANGUAGE
.....................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................
N/A
......................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................
Primary Staff Contact:
Abigaile Pittman
Planning Department
(919) 245-2567
abpittman @orangecountync.gov
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ATTACHMENT 2
Safe Routes to Schools (SRTS) Action Plan OVERVIEW
April 9, 2013
SRTS PROGRAM BACKGROUND AND PURPOSE
The Safe Routes to School (SRTS) Program was established in the 2005 Safe,
Accountable, Flexible, Efficient Transportation Equity Act: A Legacy for Users
(SAFETEA-LU). It is a federally-funded grant reimbursement program providing an
opportunity for communities to improve conditions for bicycling and walking to school.
Section 1404 of SAFETEA-LU mandates that the North Carolina Department of
Transportation (NCDOT) administer this program within the state, providing financial
assistance to state, local, and regional agencies, including non-profit organizations that
demonstrate an ability to meet the requirements of the program.
The purpose of the SRTS program is to:
• Enable and encourage children, including those with disabilities, to walk and
bicycle to school.
• Make bicycling and walking to school a safer and more appealing transportation
alternative, thereby encouraging a healthy and active lifestyle from an early age.
• Facilitate the planning, development, and implementation of projects and
activities that will improve safety and reduce traffic, fuel consumption, and air
pollution in the vicinity of schools.
The NC SRTS Program works with schools, local governments and agencies, advocacy
and non-profit organizations, and public health professionals at a grassroots level to
identify improvements that can help make bicycling and walking to and from school a
safe and healthy transportation alternative.
ORANGE COUNTY SRTS ACTION PLAN BACKGROUND
Orange County received a Safe Routes to School (SRST) Action Plan Service Award in
July 2008 for planning assistance to prepare an Action Plan for Grady A. Brown
Elementary School, Cameron Park Elementary School and C.W. Stanford Middle
School.
In 2009 NCDOT contracted Greenways, Incorporated and Greene Transportation
Solutions to work with County staff, local agency representatives, School Team leaders
and principals of the three schools to identify non-motorized infrastructure
improvements that enhance safety for walking and bicycling.
The Plan development process included a visioning and goals session and map working
session with the project staff, steering committee, and consultants. This was followed
by comprehensive fieldwork and a public workshop that sought input from residents,
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including parents, teachers, principals, children, Town of Hillsborough staff, and Orange
County staff. This input and analysis led to the development of a draft plan that
consisted of an analysis of existing conditions, and recommendations in the areas of
engineering, education, encouragement, enforcement, and evaluation (the essential `5
E's' of the program).
A draft Plan was completed, reviewed locally, and comments were submitted to
Greenways, Incorporated for inclusion in the final draft.
The draft Plan was reviewed by the NCDOT Bicycle and Pedestrian Division and a final
draft was completed and returned to the Planning Staff in December 2012.
Staff has been reviewing the final draft and developing recommended initial actions for
adoption.
Orange County Schools, the Town of Hillsborough, and Orange County will be asked to
adopt the Plan. Following adoption, the next recommended step in the Plan will be to
establish a SRTS Action Plan Advisory Committee that would be responsible for
advocating plan implementation and assist with programming and grant writing,
evaluating plan progress, and assessing plan priorities.
SRTS Action Plan Framework and Goals
The Action Plan with its recommendations was developed with a comprehensive,
framework approach addressing all 5 E's of the SRTS program — engineering,
education, encouragement, enforcement, and evaluation.
CONSIDERATIONS FOR CHOSEN SCHOOL SITES
The three schools chosen for the SRTS Action Plan are part of the Orange County
school system, and all are located inside or adjacent to the Town of Hillsborough: Grady
Brown Elementary School; CW Stanford Middle School; and Cameron Park Elementary
School. A comprehensive, multi-faceted approach was taken to examine existing
conditions including the collection of data from parent surveys and student travel tallies,
site work and field interviews, and area mapping. A thorough inventory of existing
conditions was assembled at each school site to provide a baseline by which to
measure the results and outcome of the SRTS Program at the community, school and
street levels.
Grady Brown Elementary School — located on New Grady Brown School road just off
Orange Grove Road
• The school is south of 1-40 and the roadway bridge has very narrow shoulders
• There are multiple two-lane rural roadways that pose safety barriers for school-
age cyclists and pedestrians
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• There are no sidewalks or pedestrian sidewalks or pedestrian facilities of any
kind leading to and away from the school
• There are no bicycle racks on campus
• There are no crossing guards
• Tallies: 240 students were driven by their parents; 225 students took the bus; 0
students walked; and 0 students bicycled
• Unofficial bus stops lack clear designation and safe harbor in some locations
• Existing safety concerns expressed by parents: distance; traffic speeds along
routes (45 and 55 mph); traffic volumes along routes; lack of sidewalks or
pathways; and unsafe intersections and crossings
• Crime not a significant issue of concern based on field analysis and public input
• Motorist's behaviors observed as "good" on campus and "fair' along Orange
Grove Road.
• Pedestrian behaviors observed to be generally safe around the school
• Minor backups of automobile traffic during drop-off times, with more congested
backups during pickup times (causing some thru-traffic weaving and blind spots)
• There is a clear school zone and pedestrian crossing signage along New Grady
Brown School Road
• There are on-campus sidewalks along the building front, adjacent to the car drop-
off line
CW Stanford Middle School — located next to Orange High School inside a
neighborhood with residential roads
• The school is flanked by US 70 and Orange High School Road
• There is no sidewalk connectivity to neighborhoods and streets in the vicinity of
the school; and the residential land use and street pattern on the eastern side of
the school prevents a direct connection to the school, currently requiring students
to use US 70
• There are no bicycle racks on campus
• US 70 presents a serious safety threat for pedestrians and bicyclists because of
its lack of infrastructure, high speeds, and high traffic volumes.
• There are very few traffic calming facilities in the area of the school
• Tallies: 357 students were driven by their parents; 211 students took the bus; 3
students walked; and 0 students bicycled
• Existing safety concerns expressed by parents: distance; traffic volumes along
routes; traffic speeds along routes; safety of intersections and crossings; and the
lack of sidewalks or pathways
• Motorist's behaviors observed as "good" on campus, "fair' along Orange High
School Road, and "bad" on US 70
• Crime not a significant issue of concern based on field analysis and public input
• Minor backups of automobile traffic during drop-off and pickup times
• There are possibilities of connecting neighborhoods to the school using trails and
greenways along current easements and "cut throughs"
• On-campus sidewalks and crosswalks are adequate
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Cameron Park Elementary School — located next to St. Matthews Episcopal Church on
St. Mary's Road near downtown Hillsborough, with adjacent small businesses and low
density residential development
• The traffic volumes are very high on St. Mary's Road, especially during
commuter hours
• There are no sidewalks or bicycle lanes in the vicinity of the school
• There are multiple roadways that pose safety barriers and challenges for
elementary school age pedestrians and bicyclists
• Tallies: 237 students were driven by their parents; 187 students took the bus; 19
students carpooled; 3 students walked; and 0 students bicycled
• Existing safety concerns expressed by parents: traffic speeds along routes; traffic
volumes along routes; distance; safety of intersections and crossings; and the
lack of sidewalks or pathways
• Motorist's behaviors observed as "fair" on campus, and "bad" on St. Mary's Road
• Significant backups of automobile traffic during drop-off and pickup times that
impact off and on-site traffic, turning movements, and relate to dangerous
vehicular maneuvers
• Not all curb ramps comply with ADA regulations
• The existing bicycle rack on the school's campus is situated where only one side
can be used and is not covered
• There is a clearly defined school zone on St. Mary's Road
• Besides the crossing on St. Mary's Road at Thomas Ruffin Road, there are no
marked crosswalks in the vicinity of the school
• There is an established trail connecting to the adjacent property to the school
grounds that can give children access without having to walk along St. Mary's
Road
SRTS PROJECTS
The SRTS program allows for a great variety of programs that can be implemented.
Eligible SRTS projects can be bundled as infrastructure and non-infrastructure. Funding
can include training volunteers, street crossings, safety and Intelligent Transportation
Systems (ITS), bicycle/pedestrian lanes, etc. All projects must be within two miles of a
K-8 school.
However, there are projects that are not allowed. The following are ineligible activities:
• Recurring costs, such as school crossing guards
• Pick-up and drop-off sites
• Educational focus buses
• Bus stop improvements
The NCDOT SRTS Program will fund only those activities that specifically plan for
improvements and programs that promote safe, active travel to K-8 schools and while
project inclusion in the adopted plan is encouraged, not all projects must be included in
the adopted SRTS plan.
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A variety of sources were consulted during the development of the infrastructure
recommendations:
• Plans and studies
• Existing conditions
• The Consultant's fieldwork inventory
• Public input
• Noted patterns of development
Grady Brown Elementary Projects Identified in the SRTS Action Plan.
• Project#1: New Grady Brown School Road Sidewalk and Midblock Crossing
• Project#2: Orange Grove Road / 1-40 Bridge Pedestrian Facilities
• Project#3: Oakdale Road Safety Improvements
• Project#4: Patriots Pointe Trail Connection
CW Stanford Middle School Projects Identified in the SRTS Action Plan.
• Corridor Improvement Projects (8) (sidewalks, multi-use paths) along Orange
High School Road, US 70, Harold Latta Road, Miller Road, NC 86, NC 57, and
along new off-road multi-use paths.
• Crossing Improvement Projects (9) along US 70, Orange High School Road, NC
86, and Gwen Road.
• Traffic Calming Measures along US 70.
• On-campus Improvements (sidewalks, crosswalks, bicycle racks, curb ramps).
• Enhance `cut throughs' to school from neighborhoods to the north and west.
• Follow Town of Hillsborough's sidewalk/greenway planning.
Cameron Park Elementary School Projects Identified in the SRTS Action Plan.
• Corridor Improvement Projects (11) (sidewalks, bicycle lanes, greenway trails)
along Cameron Street, St. Mary's Road, US 70, Queen Street, Thomas Ruffin
Street, and several new off-road sites.
• Crossing Improvement Projects (4) along Thomas Ruffin Street, St. Mary's Road,
Cameron Street, and Churton Street.
• Traffic Calming Measures along Queen Street, Thomas Ruffin Street, Cameron
Street, and St. Mary's Road.
• Off-campus Improvements (bicycle racks, crossing guards, left-turn restrictions,
alleviating conflicts with parking areas).
• Pedestrian signals at signalized intersections along Churton Street.
PROJECT FUNDING
The adopted plan will enhance opportunities for Orange County and the Town of
Hillsborough for obtaining Safe Routes to School (SRTS) grants to implement the Action
Plan. While adoption is not a requirement for project funding, it does demonstrate to
NCDOT local commitment to the objectives of the SRTS program, and would serve to
enhance project funding consideration in a competitive atmosphere.
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There were some revisions to federal and state funding sources in December 2012 that
will impact the funding sources for the Safe Routes to School program. Specifically, the
federal Moving Ahead for Progress in the 21St Century Bill (MAP-21) SRTS program
direct allocation funds were removed. However, NCDOT staff has advised the Planning
staff that there will continue to be SAFETEA-LU funds available for the program under
its non-competitive rolling grant cycle. It is anticipated that these funds will be continued
on an annual basis. The SRTS program is a reimbursement program that does not
require a local match (100% federally funded). When applying for federal
reimbursement grants, the County and the Town should budget funds for projects within
their respective jurisdictional limits, and set up accounts for expending those funds until
NCDOT has reimbursed project costs. Although no local match is permitted, local
governments are allowed to contribute to a project.
After identifying projects from the Plan to implement, the County would apply through
the NCDOT Division 7 office. Project funding is based on project priority with as much
local support as possible (Schools, PTA, Superintendent, municipalities, BOCC,
supporting plans, etc.), and projects from the Plan with multiple purposes/greater impact
are favored. If, for example, a proposed project for CW Stanford Middle School met the
objectives of the SRTS program, but also happened to provide a benefit to the Orange
High School, that is acceptable and even encouraged.
IMPLEMENTATION
The SRTS Action Plan emphasizes that successful implementation will require the
dedication of local government staff, commitment of the school system and local
schools, the creation of a SRTS Advisory Committee, and the continued support of local
advocates and parents. The recommended first step is the adoption of the Plan by
Orange County, Orange County Schools, and the Town of Hillsborough. Adoption of
the SRTS Action Plan demonstrates local commitment and incentivizes NCDOT to fund
local projects. The second recommended step is to establish a SRTS Action Plan
Advisory Committee (SRTS APAC). Planning staff's initial thought is that the SRTS
Advisory Committee be a sub-committee of the OUTBoard, supplemented by additional
staff from other agencies/jurisdictions as needed. The Advisory Committee would be
responsible for advocating plan implementation and assist with programming and grant
writing, evaluating plan progress, and assessing plan priorities. Multiple subsequent
implementation action steps are outlined and prioritized in the Plan, the fruition of which
would be subject to the recommendations of the Advisory Committee and the approval
of the BOCC, School Board, and Town of Hillsborough.
Lead Planning Agency Role
NCDOT recommends that the County serve as the Lead Planning Agency, but the
details of this responsibility will need to be worked out between Orange County, Orange
County Schools, and the Town of Hillsborough as an initial step in advancing
implementation of the SRTS Action Plan.
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