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HomeMy WebLinkAboutAgenda - 06-28-1994-X-B '. 1. s OR AN G E C 0 U N T Y BOARD OF COMMISSIONERS ACTION AGENDA ITEM ABSTRACT Meeting Date: June 28, 1994 Action Agenda Item # x_$ SUBJECT: STATUS REPORT ON THE IMPLEMENTATION OF THE REGIONAL BICYCLE PLAN DEPARTMENT: PLANNING PUBLIC HEARING Yes _x—No ATTACHMENT(S) : INFORMATION CONTACT: Slade McCalip Extension 2595 S. McCalip memo of 6/13/94 ISSUE PAPER- "BICYCLE PLANNING & TELEPHONE NUMBERS: IMPLEMENTATION IN ORANGE COUNTY" Hillsborough-732-8181 Durham -688-7331 Mebane -227-2031 Chapel Hill -967-9251 PURPOSE: To receive information on the status of the implementation of the Durham-Chapel Hill-Carrboro (DCHC) Regional Bicycle Plan. BACKGROUND: In December of 1993 the Transportation Advisory Committee (TAC) of the DCHC approved the Regional Bicycle Plan. The TAC then referred the plan to the local governments within the DCHC Urban Area for use as a bicycle planning guideline. Information as to recommended implementation of the plan is provided in the attached MEMORANDUM and ISSUE PAPER. RECOMMENDATION: The administration recommends that the Board receive this report as information and refer to Planning Board the development of the following: a) a resolution for consideration by the BOCC concerning adoption of the Regional Bicycle Plan as a planning guideline for bicycle facilities in Orange County, b) a Bicycle Route Suitability Study, and c) a curriculum of bicycle awareness programs (to be developed jointly with the Board of Education) . 2. � MEMORANDUM TO: Gene Bell, Planner III FROM: Slade McCalip, Planner II DATE: June 13, 1994 SUBJECT: Regional Bicycle Plan Implementation. COPIES: Marvin Collins, Director of Planning, Orange County Because the Regional Bicycle Plan (RBP) is comprehensive in nature and attempts to address all aspects of bicycling, the plan tends to be somewhat long and technical. Attached, for brevity, you will find an issue paper on Bicycle Planning and Implementation in Orange County. This issue paper is intended to inform the reader about; how the RBP came into existence, the intent of the RBP, and staff recommendations to accomplish the RBP's intent. There are thirteen staff recommendations that address the implementation of the RBP. Given the limited amount of staff resources (one planner part-time) for RBP implementation, one approach would be to organize the recommendations into a multi-year work program. Each year objectives would be set to determine the implementation progress and to program resources. For FY 95, to begin July 1st, I recommend that the Orange County Board of Commissioners charge the Planning Board with developing and recommending: a) a resolution to be adopted by the BOCC whereby the RBP be adopted as a planning guideline for bicycle facilities in Orange County, b) a Bicycle Route Suitability Study, and c) bicycle awareness programs (developed jointly with Orange County Board of Education) . As mentioned above, this memo is intended to begin the implementation process for the RBP. Depending on when the above mentioned tasks have been completed another set of RBP implementation objectives will be recommended for completion. 3. DRAFT JUN 94 DRAFT JUN 94 DRAFT JUN 94 DRAFT JUN 94 DRAFT JUN 94 ISSUE PAPER BICYCLE PLANNING AND IMPLEMENTATION IN ORANGE COUNTY I. BACKGROUND AND INTENT OF TAC In its deliberations on the proposed Durham-Chapel Hill-Carrboro (DCHC) Thoroughfare Plan, the Transportation Advisory Committee (TAC) identified the need for regional coordination on bicycle planning as a necessary adjunct to the coordination on thoroughfare planning already in progress. The TAC discussed this with representatives from the NCDOT Bicycle Program. A problem arose in that Bike Program funds were very limited and could not be used for planning purposes. The TAC elected to employ a consultant to prepare a regional plan. Under the TAC's direction, a request-for- proposals (RFP) was drafted. It identified three basic areas on which the plan would focus: 1) Increasing public education and awareness of bicycling; 2) developing appropriate enforcement guidelines; and 3) bicycle route planning to develop a regional system. The plan was to be financed on a proportional basis by Chapel Hill, Carrboro, the City of Durham, Durham County, and Orange County. Because of an initial focus on education and enforcement issues, Orange County was reluctant to participate. However, after assurances that there would be greater emphasis on the planning of bicycle routes, the County elected to participate in October of 1991. Timing on preparation of the Regional Bicycle Plan was fortuitous in that it coincided with passage of the Intermodal Surface Transportation Efficiency Act (ISTEA) in December of 1991. As per ISTEA, for a project (bicycle or otherwise) to be funded by the state and federal governments, that project must be in the regionally adopted transportation plan (DCHC Comprehensive Transportation Plan) . If a project is in the regionally adopted transportation plan then it is eligible to be included into the Local (regional) Transportation Improvement Program (LTIP) . After the LTIP is developed the State Transportation Improvement Program (STIP) is developed in cooperation with the MPO and in consideration of the LTIP. Therefore, in order for Orange County bicycling projects to be eligible for federal and state funding, these projects should be in the DCHC Regional Bicycle Plan which is intended (as of the date of this paper) to be a component of the DCHC Comprehensive Transportation Plan. It also means that these projects must adhere to the TIP programming cycles and must be included in the LTIP if they are to be built. 1 4. DRAFT JUN 94 DRAFT JUN 94 DRAFT JUN 94 DRAFT JUN 94 DRAFT JUN 94 II. PLAN OVERVIEW A) INTENT OF PLAN The intent of the plan is clearly illustrated by the following sentences taken from page 8 of the Introduction to the plan: "The primary emphasis of this Plan is to examine the use of the bicycle for transportation purposes. This emphasis is necessary in order to specifically address the transportational mandate set forth by ISTEA. " "The Regional Bicycle Plan addresses both urban and rural use of the bicycle for transportation purposes, with specific emphasis on connections between urban areas. " B) EIGHT GOALS TO ACHIEVE THE INTENT 1 - Encourage Bicycle Use. 2 - Plan and Establish a Comprehensive Regional Bicycle Route Network. 3 - Integrate Regional Bicycle Network with Existing and Future Transportation Planning, Design, and Development. 4 - Improve Bicycle Access by Providing and Upgrading Facilities that Create a Safe, Complete, and Efficient System for Bicycling. 5 - Develop an On-Going Bicycle Education Program That is Flexible and Responsive to the Needs of Regional Residents. 6 - Develop a Regional Law Enforcement Program to Maintain a Safe Bicycling Environment for Residents of the Region. 7 - Encourage the Private Sector to Increase Opportunities for Bicycling to Work, School, Shopping, and Tourism Facilities. 8 - Utilize Bicycles as a Component of Trip Reduction to Achieve Better Air Quality Standards and Reduce Traffic Congestion. C) PROGRAMS TO ACHIEVE THE GOALS The plan recommends three types of programs to enhance bicycle travel: 1) education & awareness, 2) enforcement, and 3) route planning. The first two types of programs are intended mainly for areas more urban in nature, especially Durham and Chapel Hill. The third type of program will be especially useful for Orange County. A brief description of each follows: 1) Education & Awareness - Intended to educate bicyclists and vehicle drivers to prevent injuries to bicyclists. Programs recommended; Basics of Bicycling intended for elementary public school children, additional courses for 2 5. DRAFT JUN 94 DRAFT JUN 94 DRAFT JUN 94 DRAFT JUN 94 DRAFT JUN 94 middle schools, high schools, and an adult bicycle education courses. Courses for motorists to include: bicycle component for driver's education courses, bicycle questions on the drivers examination, brochures in the drivers license renewal letters, etc. 2) Enforcement - Update bicycle traffic laws, develop active enforcement program, develop bicycle registration program, appoint a "bicycle liaison officer" , develop a cops on bikes program. 3) Route Planning - By far the largest part of the plan and includes sections on Urban Planning for a Bicycle- Friendly Community, Transportation Engineering for a Bicycle-Friendly Community, Regional Bicycle Route Planning, and Regional Bicycle Action Plans. D) TYPES OF BICYCLISTS GROUP A - ADVANCED BICYCLISTS: Experienced riders that can operate under most traffic conditions, and comprise the majority of the current users of collector and arterial streets. GROUP B - BASIC BICYCLISTS: Casual or new adult and teenage riders who are less confident of their ability to operate in traffic without special provisions for bicycles. GROUP C - CHILDREN CYCLISTS: Pre-teen riders whose roadway use is initially monitored by parents, eventually they are accorded independent access to the system. It has been estimated by the Bicycle Federation of America that 5% of cyclists nationwide would fall into the advanced cyclist category. Given the number of universities in the Triangle, there are probably a larger percentage of advanced cyclists. However, it is unlikely that more than 10% of local cyclists fall into this category. The majority of cyclists, therefore, are "B/C" cyclists, or basic and child cyclists. E) TYPES OF BICYCLE FACILITIES Bicycle Lanes - Typical design is a 4 '-16 wide paved lane in each direction adjacent to the vehicle lane, intended for urban areas and all cyclist types, delineated by a 4"-6" painted white line and signed appropriately. Paved Shoulders - Typical design is a 4 '-6' wide paved lane in each direction adjacent to the vehicle lane, intended for rural areas and advanced cyclists, delineated by bicycle route signs. 3 6 DRAFT JUN 94 DRAFT JUN 94 DRAFT JUN 94 DRAFT JUN 94 DRAFT JUN 94 Bicycle Routes - Typically this would entail the removal of all bicycle hazards along the route and then placement of signs designating the route, intended for both urban and rural areas, plan does not mention design cyclist, factors used to determine how appropriate a route is are; directness, scenery, and available services. Wide Outside Lanes - Usually 14 , wide travel lanes to accommodate both vehicles and bicycles, intended for urban areas and advanced cyclists. Not recommended for use by the NCDOT Office of Bicycle and Pedestrian Transportation, because of the high probability of vehicle conflicts. Multi-use Trails - At least 10' wide paved pathways that would have 2 ' shoulders and 2 ' clearance to obstructions, normally closed at night due to liability considerations, intended for urban\suburban areas and all three types of cyclists. III. PLAN RECOMMENDATIONS FOR ORANGE COUNTY The plan recommends that a complete engineering feasibility study be performed on each rural route, and that these routes (as depicted on the Rural Route Map, see attachment 1) have no "obvious deficiencies that would adversely affect bicyclists, given the addition of bicycle facilities" . I think it is important to note that the plan implies that these routes are not ready yet, but may be adequate if bicycle facilities are built. A) The plan has the following recommendations for rural bicycle planning: 1) Additional paving widths (shoulders) be added to bicycle routes as incidental projects as these routes are repaved\realigned, not as projects in and of themselves. 2 ) That "Share the Road" signs be placed along the routes to warn motorists that cyclists frequently use these routes. 3) That each route be assessed for possible hazards to cyclists and then the hazards be removed. 4) Upon removal of hazards, local governments should develop route maps for bicycling (each should contain a disclaimer absolving the county of any liability should a bicycle accident occur) . B) The plan also recommends that the following be undertaken between fiscal year 1993 and 1997: 1) Develop and adopt bicycle policy statement. 4 7. DRAFT JUN 94 DRAFT JUN 94 DRAFT JUN 94 DRAFT JUN 94 DRAFT JUN 94 2) Make additions to Comprehensive Plan to include bicycling. 3) In-service staff training programs should be provided for city and county transportation and planning staff. 4) Substandard facilities should be identified and corrected, to avoid municipal liability. 5) Rural route hazard removal should be initiated, "Share the Road" signs should be installed on rural roadways identified by Rural Bicycle Route Plan. 6) Adopt zoning ordinances, development ordinances and standard practices that ensure bicycle friendly land use development. 7) All outdated bicycle traffic ordinances should be brought to modern standards. Each jurisdiction should adopt progressive bicycle parking ordinances. 8) Full scale helmet promotion campaigns should be implemented in each locality. The bicycle education plan should be implemented, concentrating on Basics of Bicycling in public schools. Adult education efforts should begin, primarily through universities and public service announcements. 9) The new "Share the Road" segment of the Driver's Education curriculum should be implemented across the region, in public schools and through private driver's training courses. Local bicycle advisory committees should contact local Driver's Education instructors and encourage use of new curriculums. 10) Bicycle registration programs should be initiated, or strengthened in areas where they already exist. IV. IMPLEMENTATION OPTIONS AND COSTS The NC DOT does not have estimates of cost by facility type. NC DOT prefers to develop cost estimates on a case by case basis because often times there are unique aspects to each bicycle facility that will affect its cost, i.e. , wetland mitigation, bridge widening, etc. What is provided below is an "order of magnitude" type of cost estimate that will allow a comparison of the different facility types. Bicycle Lanes - Typical design is a 4'-'6 wide paved lane in each direction adjacent to the vehicle lane, intended for urban areas. Average cost is $100,000 to 150,000 per mile (4 ' paved lanes) . 5 8 . DRAFT JUN 94 DRAFT JUN 94 DRAFT JUN 94 DRAFT JUN 94 DRAFT JUN 94 Paved Shoulders - Typical design is a 4 '-6 ' wide paved lane in each direction adjacent to the vehicle lane, intended for rural areas. Average cost is $100,000 to 150,000 per mile (for a 4 ' paved lane each way) . Bicycle Routes - Typically this would entail the removal of all bicycle hazards along the route and then placement of signs designating the route. Cost would depend on the type and amount of hazards to be removed. Wide Outside Lanes - Usually 14 ' wide travel lanes to accommodate both vehicles and bicycles. If the existing roadway has 12 ' wide lanes then it would cost approximately $75,000 per mile (2 ' paved shoulder added to each side of the roadway) . Not recommended for use by the NCDOT Office of Bicycle and Pedestrian Transportation. Multi-use Trails - At least 10' wide paved pathways that would have 2 ' shoulders and 2 ' clearance to obstructions, normally closed at night due to liability considerations. Approximate cost is $200,000 per mile. Based on estimated cost for Phase I of the American Tobacco Trail project in Durham which will be 12 ' wide and will have four bridges. These estimates do not include right-of-way, bridging, lighting, signage, parking racks or other costs (except for the Multi-use Trail estimated costs) . They were developed based upon cost estimates for existing projects and information provided by NC DOT. V. ROLE OF NCDOT BICYCLE PROGRAM The NC DOT Office of Bicycle and Pedestrian Transportation has the overall responsibility for bicycle planning at the state level. They also make recommendations on which bicycle projects should be included in the State Transportation Improvement Program (STIP) , see attachment 2. Should a project be included in the STIP, a feasibility study will be performed to determine the project's potential costs and benefits. At each phase of analysis the North Carolina Board of Transportation reviews the Office's recommendations and makes the final recommendation as to what is or is not studied or built. VI. STATUS OF THE PLAN IN OTHER JURISDICTIONS Durham: There is currently some debate by staff on whether the DCHC adopted Regional Bicycle Plan needs to be taken to the Durham City Council and the Durham County Commissioners for their adoption. They have a local plan which was developed and implemented at the local level (with the city contributing funds) through the old NC DOT (pre-ISTEA) program. Durham is currently planning on hiring a full-time Bicycle 6 9. DRAFT JUN 94 DRAFT JUN 94 DRAFT JUN 94 DRAFT JUN 94 DRAFT JUN 94 Coordinator to facilitate their urban bicycle planning program. Chapel Hill: Currently the Town Council has referred the Regional Bicycle Plan to the following boards; Transportation, Planning, Greenways, and Bicycle. Each board is expected to review the plan and determine whether it should be adopted by the Town Council. On May 9th, 1994 the Town Council adopted a resolution to use the plan as a guideline (see attached resolution) . They also have a local plan which was developed and implemented at the local level (with the town contributing funds) through the old NC DOT (pre-ISTEA) program. They currently have one transportation planner dedicated to performing bicycle and pedestrian planning. Carrboro: They have a local plan which was developed and implemented at the local level (with the town contributing funds) through the old NC DOT (pre- ISTEA) program. There is an issue as to whether they are eligible to receive funding for any more bicycle projects because they are not included in the Regional Bicycle Plan. Hillsborough: The town currently has no planned bicycle routes (it was not an official member of the DCHC when this plan was adopted) . The Orange County Transportation Planner II is working closely with the town to develop bicycle routes and then request that the Regional Bicycle Plan be amended to include those routes. VII. STAFF RECOMMENDATION Staff recommends that the following bicycle planning process be implemented: A) Plan/Policy/Ordinance Related 1. Consider incorporation of Regional Bicycle Plan (or portions thereof that are consistent with Orange County's Thoroughfare Plan, Transit Plan, Scenic Road Plan, etc. ) into the Transportation Element of the Orange County Comprehensive Plan. 2. Develop and consider adoption of bicycle policy statement, i.e. , "Orange County hereby states that bicycling is a mode of transportation to be encouraged and fostered. The County is committed to providing better facilities for cyclists, education programs for 7 10. DRAFT JUN 94 DRAFT JUN 94 DRAFT JUN 94 DRAFT JUN 94 DRAFT JUN 94 cyclists and motorists, bicycle law enforcement, and incentives to encourage cycling as a viable form of transportation" . 3. Research will be performed as to what amendments to zoning ordinances, development ordinances, and standard practices that would be required to ensure bicycle friendly land use development for consideration and adoption by the BOCC. B) Education/Enforcement Related 1) Full scale helmet promotion campaigns should be implemented in the County. The bicycle education plan should be implemented, concentrating on Basics of Bicycling in public schools. Adult education efforts should begin, primarily through UNC and public service announcements. 2) The new "Share the Road" segment of the Driver's Education curriculum should be implemented in public schools and through private driver's training courses. 3) Bicycle registration programs should be initiated, or strengthened in areas where they already exist. C) Facilities/Route Related 1) That a suitability map of rural bicycle routes be prepared as a first step using the techniques outlined in Appendix E of the Regional Bicycle Plan. 2) That a meeting with Chapel Hill/Carrboro and Durham officials be held to define preferred rural routes connecting Hillsborough with the two urban areas. 3) That a priority listing of rural bicycle routes be developed. 4) That "Share the Road" signs be placed along the priority routes to warn motorists that cyclists frequently use these routes now. 5) That a LTIP project proposal be developed whereby an Engineering firm would perform a complete engineering feasibility study for each Priority Route, and that each study include cost estimates and detailed descriptions of facilities (improvements) for further LTIP programming. 6) That the NCDOT be furnished with Orange County's Priority Bicycle Routes and that NC DOT make a commitment to 8 ' 11. DRAFT JUN 94 DRAFT JUN 94 DRAFT JUN 94 DRAFT JUN 94 DRAFT JUN 94 provide additional paving widths (shoulders) as incidental projects to priority bicycle route roadways that are to be upgraded. 7) Upon removal of hazards, route maps for bicycling should be developed (each should contain a disclaimer absolving the county of any liability should a bicycle accident occur) . D) That the Long Range work session of the Planning Board on July 12 be devoted to the Regional Bicycle Plan and that a Planning Board recommendation be prepared for County Commissioner consideration. 9 12. 6 A RESOLUTION DIRECTING THAT THE DURHAM-CHAPEL HILL-CARRBORO URBAN AREA REGIONAL BICYCLE PLAN BE USED AS A GUIDELINE IN PLANNING FOR BIKEWAY IMPROVEMENTS IN CHAPEL HILL (94-5-9/R-4) WHEREAS, the Durham Urban Area Transportation Advisory Committee has adopted the Regional Bicycle Plan; and WHEREAS, the Transportation Advisory Committee has referred the Regional Bicycle Plan to local governments for implementation; and WHEREAS, the Council referred the Regional Bicycle Plan to Town advisory boards for their review and recommendation toward adopting the Regional Bicycle Plan as a component of the Chapel Hill Comprehensive Plan; and WHEREAS, the Chapel Hill Transportation Board, Planning Board, Bicycling Advisory Committee and Greenways Commission have reviewed and approved the Regional Bicycle Plan to be used as a bicycle facilities planning guideline, and WHEREAS;_ the Council referred the Regional Bicycle Plan Education and Enforcement Report to the Chapel Hill-Carrboro school system for; their "review and possible incorporation into bicycle safety curricula. NOW, THEREFORE, BE IT RESOLVED by the Council of the Town of Chapel Hill that the Durham-Chapel Hill-Carrboro Urban Area Regional Bicycle Plan be used as a guideline in planning for bikeway improvements in Chapel Hill. This' the 9th 'day of May, 1.994.