Chapter One: Introduction: Connecting People and Trails

Many communities in Iowa have expressed a desire to develop a plan for better accommodating pedestrians and bicyclists in their community. This desire results from the recognition that walking and bicycling are popular recreational activities and, are increasingly important as "alternative transportation modes." Recognizing the desire on the part of communities to create better conditions for bicycling and walking, the Iowa DOT developed this handbook as part of Iowa Trails 2000.

This handbook outlines the steps and resources required to create a comprehensive system of bicycle and pedestrian facilities. Such a system can serve local needs and connect communities to the Iowa State Trails System and other regional attractions.

Iowa's trails have been, and will continue to be, developed through the combined efforts of citizens and state, regional and local governments. By working cooperatively, state and local governments can serve local bicycle and pedestrian needs and connect communities to the Iowa State Trails System and other significant regional attractions.

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Why Plan Locally for Bicycling and Walking?

Everybody walks, and many people enjoy bicycling. Today, many communities are exploring ways to encourage these activities. Some reasons many communities are focusing on bicycling and walking today include:

• The enormous popularity of trails.
• State and national surveys indicate that pedestrians and bicyclists are the most common trail users, and Iowans would like more trail opportunities closer to home.
• Pedestrian and bicycle transportation provide many benefits, including:
  • transportation alternatives
  • increased physical activity
  • improved air quality (reduced auto emissions)
  • friendlier, livelier and more pleasant communities
• State and federal transportation programs encourage increased investment in alternatives to automobile travel and provide funding for bicycle and pedestrian facilities.
• Increasing motor vehicle volumes and speeds have degraded conditions for bicycling and walking.

• It is federal policy as expressed in The National Bicycling and Walking Study to
  • double the current (1994) percentage (from 7.9 percent to 15.8 percent) of total trips made by bicycling and walking, and to
  • reduce by 10 percent the number of bicyclists and pedestrians killed or injured in traffic crashes.

   

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What is Bicycle and Pedestrian Planning?

Not so many years ago, most urban and suburban communities had sidewalks and many low volume, low speed roads. Many rural communities had few sidewalks, but traffic was sparse and moved at lower speeds than today. Increases in population and automobile use have resulted in complex transportation systems that accommodate more traffic. Motorized traffic has been accommodated without always considering the needs of non-drivers. In response to a growing interest in walking and bicycling, planners and engineers have developed guidance to improve conditions.

Bicycle and pedestrian planning should be guided by the following principles.

Principle # 1: Local bicycle and pedestrian systems should provide safe and comfortable facilities.

Research has contributed to our understanding of the needs of bicyclists and pedestrians. For instance, there is unequivocal evidence that sidewalks protect pedestrians and contribute to overall traffic safety. Other research indicates that bicycle lanes increase the safety of bicyclists on roadways between intersections and enhance a bicyclist's sense of comfort in traffic. Research is inconclusive as to whether bicycle lanes help or complicate movements at intersections. Careful design judgment is required for the best application of many bicycle and pedestrian improvements.

There are many ways to increase the perception of safety. For example, attractive surroundings are more welcoming to pedestrians and bicyclists. Tree-lined streets with minimum traffic, traveling at low speeds, and well-maintained roads and sidewalks invite bicycling and walking. Buildings in good condition also increase an individual's sense of comfort and safety in a neighborhood. Higher density environments that provide sidewalks and short distances between residential and commercial areas also encourage walking.

Areas that are inherently unfriendly to bicyclists and pedestrians can be improved with practical design treatments. For example, the safety and comfort of pedestrians and bicyclists can be improved at multi-lane crosswalks with the addition of refuge islands and recessed stop lines. Furthermore, the addition of landscaping may also increase a person's sense of comfort and safety.

Principle #2: Direct access to destinations and continuity through connected facilities encourages the use of bicycle and pedestrian facilities.

Efforts should be made to connect local facilities with adjacent communities and state and regional trails.

Pedestrians need a continuous system of sidewalks and crossing opportunities that connect residential areas to schools, jobs, shopping, and other services. There should be a pro-active approach by government that will require sidewalks in new developments and in-fill of missing sidewalk links.

Bicyclists are also dependent on continuity, especially if bicycles are used for transportation. A broad range of improvements can accommodate bicycling, including the signing and re-striping of existing roadways, as well as, building off-road trails. The most efficient bicycle plans accommodate the highest priority destinations of local cyclists through connected facilities.

Access can further be improved by considering pedestrians and bicyclists in site design and transit planning. Walkways to and within large developments and shelters for transit users provide convenience and comfort for pedestrians. "Bikes-on-buses" programs increase the efficiency of public transit. Bicycle parking should be available at transit stations, shopping areas, schools, libraries and parks.

Principle #3: The design and extent of a bicycle and pedestrian system should reflect the needs of the community.

Communities differ in the type of bicycle and pedestrian facilities they require. The character of a community, its existing infrastructure and the needs of local bicyclists and pedestrians determine the opportunities and constraints that define a reasonable approach to planning. Rural communities that are characterized by relatively narrow roads with shoulders, limited public land holdings, and long distances between farms and towns are quite different from urban areas with high traffic volumes, curbed streets, and compact land uses. University and college towns, as well, have special needs.

Opportunities for off-road trail facilities also vary by community location and type. Suburban communities often fare well, especially if they have actively planned for open space preservation along rivers and abandoned railroad rights-of-way. They can develop inter-urban trails, create local bikeway networks, and include sidewalks in new development.

Opportunities to create linear trails in urban areas are sometimes constrained by dense land use and intense development pressure. However, in many cities, riverwalks and railroad corridors have been developed as important public spaces. Cities usually have the advantage of a grid street pattern and a relatively complete sidewalk system that offers alternatives for bicycle travel and places to walk.

Rural areas gain multiple benefits when shoulders of roadways are paved for bicyclists and town centers are designed to be pedestrian friendly. A correlation exists between high levels of bicycling and walking and the presence of a college or university. Educational institutions should always be included in a community's non-motorized planning efforts.

Principle #4: A bicycle and pedestrian plan should be implemented in phases over a reasonable period of time.

The development of a bicycle system network and pedestrian circulation system will be determined, in part, by input from the public, the configuration of the existing infrastructure and linear corridors, and availability of funding. It is important to select popular initial projects that can be readily implemented. In addition, early projects should include low cost items that will make a difference to the community. Subsequent projects will include those that require more coordination and a longer funding horizon.

It is advantageous to secure local funding from a variety of sources. Demonstrating that a plan can be executed through a combination of already-planned transportation projects, various grant programs and local volunteer efforts builds support for allocating needed matching funds and accessing local budgets.

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Who Should be Involved?

Many local, regional, and state agencies can impact trail, bicycle, and pedestrian planning. Included among these agencies are: transportation, public works, and planning departments at the local, county, regional, and State levels; county conservation boards; and the Iowa Department of Natural Resources (DNR).

It is essential that citizens also become involved in the planning process, partly because a strong public voice and vision will greatly empower local decision-makers. The business community, including private developers and Chambers of Commerce, represent some impacted constituents. Associations of homeowners and neighborhoods can also participate.

Citizen Advisory Committee

In most communities, there are individuals who are especially interested in trails, pedestrian issues, and/or bicycling. These people may be parents, environmentalists, homeowners, members of bicycle clubs, or advocates for the elderly or those with disabilities. They might be individuals who simply like to walk and bicycle and who want to enhance their communities with better recreational and transportation facilities. The involvement of these individuals in the planning process should be encouraged. A citizens' advisory committee can help to create consensus, identify issues and needs, and review planning efforts.

Bicycle/Pedestrian Coordinator

Many communities will not hire or appoint a full-time bicycle, pedestrian, and trail planner. However, every community should assign one person to coordinate and oversee trail, bicycle, and pedestrian planning projects. Usually, several departments, including planning, public works, traffic, police, parks, and schools have reason to contribute to these efforts. It is extremely helpful to have one individual who can coordinate these various internal departments as well as work with other agencies.

Involved Public Officials

It is imperative that public officials express their support for the planning process. In smaller communities with minimal staff, public officials may provide leadership and fulfill the coordinator's role. In most communities, there will be dissension by someone at some time to some aspect of a trail, bicycle, or pedestrian plan. Creative and proactive leadership can diffuse problems that might stall or stop important projects.

Finally, it is important to know that technical assistance is available. The Iowa Department of Transportation (DOT) provides technical assistance through its Transportation Center Planners. The Iowa DOT also has a Bicycle and Pedestrian Coordinator who can answer many questions about planning, design, and funding. Many projects are funded through the Metropolitan Planning Organizations (MPOs) which, along with the Regional Plan Affiliations (RPAs), also provide technical assistance. Additional resources include the Iowa Department of Natural Resources (DNR), the local office of the Federal Highway Administration (FHWA), and the Bicycle and Pedestrian Clearinghouse, a national source for publications and information. (See Appendix Three for contact information for District Transportation Planners, MPOs/RPAs and other resources.)