Chapter Two: Creating Your Community Bicycle and Pedestrian Plan

Step 3: Planning Considerations

Bicycle and pedestrian planning should be understood in the larger context of state, regional, and local planning. These other planning efforts create opportunities to expand the impact of local facility planning. Local systems should connect to the State Trail System. Additional opportunities to address non-motorized travel exist in land-use and site planning, as well, and through roadway design and traffic operations. Some community types have special needs and advantages as they consider bicycle and pedestrian planning. In Iowa, this is especially true of rural and college towns.

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Connecting to the State Trails System

The State of Iowa has developed a plan for a statewide system of trails. Additionally, several regional agencies and many local communities have planned and constructed trails. These facilities provide an inter-urban armature of relatively long distance trails. They serve a regional population and connect destinations of broad interest to Iowans and visitors. People often travel to these trails; in fact, the trail itself can be a destination.

In contrast to state trails, local systems include trails, bikeways, and walkways that provide access between a community and the state system; provide safe and convenient facilities for bicyclists and pedestrians at the local level; reflect the community style; and, respond to the needs of its citizens.

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Trails and Roadways for Non-motorized Transportation Touring

Accommodations for bicyclists and pedestrians are made in two contexts:

• Independent multi-use trails
• Roadway-based facilities

Pedestrians and bicyclists want to go to most of the destinations that are accessed by cars. Even very extensive trail systems cannot serve all of these destinations. Inevitably, the road right-of-way, consisting of traffic lanes, shoulders, intersections, parkways and sidewalks serves as the primary planning area for bicycle and pedestrian accommodations. Bicycle travel can be greatly enhanced by roadway improvements, including various strategies to reduce hazards and create bikeways.

It is in the interests of local governments to participate in developing State and regional trails. Economic benefits are detailed in the Iowa Trails 2000 handbook, "Implementing Trail-Based Economic Development Programs." Local participation in projects that complete the State system offers residents trail opportunities close to home and creates a facility that will stimulate additional interest in bicycle and pedestrian planning. Local communities should connect neighborhoods to the trail through a local system of facilities. Most of these facilities will make use of the existing roads. Roads can be made considerably safer for bicyclists and pedestrians through the measures recommended in this handbook. Access to the State system can be further enhanced by the use of signs to guide people to trails.

Product/Action

• Include, as priority projects in local bicycle/pedestrian planning, any portions or connections to the State and regional trail system that travel through the community. <
• Follow the "Trail Design Guidelines," developed for Iowa Trails 2000, as well as the "Design Considerations" summarized in Chapter Three below.
• Include and sign connections from the local community to the state trail.

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Land-Use and Site Design

Community Layout

Land use patterns are notoriously difficult to influence. Yet, the proximity of development and potential for access between destinations is a primary factor in walking and bicycling patterns. Research shows that areas with higher densities and mixed use development are more conducive to walking. In many lower density suburban environments, however, bicycling is often discouraged by obstacles such as busy streets without bicycle accommodations and inadequate crossing opportunities.

Site Access

Both the basic development pattern and the design of individual sites can encourage or discourage bicycling and walking. For example, large parking lots in the front of buildings, berms that discourage easy access, and blank walls are intimidating. However, interesting facades and buildings that face the street and are closer to sidewalks create a more pedestrian "friendly" environment. Parking for cars should either be provided on the street or behind the development. Parking for bikes should also be provided in a protected location and close to the building to encourage non-motorized access.

Transit Connections

Walkways should connect to loading areas from nearby destinations. Bus stops are frequently located in muddy locations without sidewalk connections, that discourages transit usage. Bicycle parking should be available at all fixed rail service stations, bus service hubs, and express stops. In many cities, bicycles are accommodated on transit vehicles. Loading the bicycle onto a rack on the bus or into a transit car combines the flexibility of the bicycle with the efficiency of transit for longer distances.

Product/Action

On February 28, 2000 FHWA Administrator Kenneth Wykle signed off on a new U.S.DOT policy, Accommodating Bicycle and Pedestrian Travel: A recommended Approach. The key principal of this policy is that bicycling and walking facilities will be incorporated in all transportation projects, unless circumstances that preclude incorporation are demonstrated. For information: www.fhwa.dot.gov/ environment/bikeped/ Design.htm

The following land-use planning tools are recommended to positively impact walking and bicycling:

• Encourage in-fill development.
• Provide connections between adjacent developments through a comprehensive network of local streets and/or a series of non-motorized paths.
• Allow back access to retail areas from bordering residential neighborhoods to shorten trip distances for those on foot or bike.
• Design pedestrian connections and adequate crossing opportunities between adjacent areas of strip development and across busy streets that border those developments.
• Require sidewalks in conjunction with development, including appropriate sections of the public right-of-way and private access to buildings.

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Roadway Design and Traffic Operations

Roadway Design Issues

Pedestrians and bicyclists encounter many problems on the roads, such as high speeds, high volumes, extremely wide intersections that are difficult to cross, and lack appropriate facilities. Federal policy supports the consideration of non-motorized needs on all federally funded roadways. The state of Iowa has recently adopted a new, "Bicycle and Pedestrian Accommodation Guidance," which will be applied to state roadways primarily at the time of roadway construction or re-construction. The focus of this guidance is the provision of bicycle accommodations within highway right-of-way where the need is demonstrated. (See Appendix Three for a copy of this guidance.)

Speed and Its Impact

According to research conducted in Germany, the impact of speed on the severity of pedestrian and bicycle crashes is dramatic. In crashes where the vehicle is traveling at 20 mph, fewer than 5 percent of pedestrians are killed; at vehicle impact speeds of 30 mph, close to 40 percent of pedestrians struck have died; and, at 45 mph, more than 80 percent are killed.

Based largely on this and other studies of the impact of speed in the traffic mix, many European countries are implementing policies to maintain very low speeds in congested pedestrian areas and residential neighborhoods. The results of a program in Graz, Austria, after one year, show:

• Serious traffic related injuries were reduced by 24 percent.
• Median speeds were not significantly reduced citywide and traffic flow was more homogenous.
• Traffic behavior improved, especially that of motorists toward pedestrians.
• Noise levels have been reduced.

  

Traffic Calming

Traffic calming is the term used to describe a variety of techniques that slow or constrain traffic so that pedestrians, bicyclists, and motor vehicles share the road on more equal terms. Traffic calming measures are most often used on residential or central business district streets where increasing pedestrian access and safety is desirable. In Seattle, where such measures have been introduced in many neighborhoods, studies have found significant reductions in motor vehicle speeds, the number and severity of accidents, and air pollution.

Traffic calming introduces variety to street design. A related trend is the introduction of more flexible street design standards, especially in residential development. The use of national standards for the design and dimensions of residential streets has resulted in excessively wide and monotonous streets that encourage speeding and discourage pedestrians. Some communities are finding that they want to reclaim street space for multiple uses, including play space for children and a safer, more interesting environment for pedestrians and bicyclists. A trend toward "skinny streets" in residential areas is intended to create a more intimate, attractive, people friendly environment.

Properly designed and implemented traffic calming measures:

• Slow and/or divert traffic
• Reduce traffic accidents
• Reduce pollution
• Increase the safety and pleasure of walking and bicycling
• Provide opportunities for street "greeting"
• Improve the visual appeal of neighborhoods
• Provide opportunities for the shared use of streets as public space

Communities should consider the impact of roadway projects and whenever possible, incorporate designs that accommodate and encourage bicycle and pedestrian travel.

Product/Action

• Adopt a local policy to consider bicycle and pedestrian needs in all roadway projects.
• Conduct speed studies in several neighborhoods to get a sense of where problems might exist.
• Consider the implementation of traffic calming installations in neighborhoods with speeding concerns.
• Suggest some traffic calming installations if a neighborhood has a speeding problem and the residents are opposed to the installation of sidewalks.
• Reduce speed limits and constrain traffic, as needed, to increase the safety of bicyclists and pedestrians.

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Community Design Considerations

Some environments require special consideration of the needs of bicyclists and pedestrians.

Rural Communities

The small populations and sparse development patterns of Iowa's many rural communities create a different demand and need for bicycle and pedestrian accommodations. Rural areas attract bicyclists, but have limited facilities for them. The land-use patterns consist of small towns and farmland with large tracts of state park land. Roads are primarily two-lane state or county highways with no shoulders. Most people live in large lot, single-family housing except those "in town" where housing is more dense.

Rural Downtowns

Iowa's rural crossroads communities have a unique charm. Unfortunately, the highways that form the major street axes for these communities often present difficult conditions for bicyclists and pedestrians. In some communities, a large amount of through traffic traverses "downtown" and it can include potentially hazardous truck traffic. Sidewalks and on-road bicycle facilities are needed to serve local residents and touring cyclists.

It may be necessary to reduce the speed of through traffic within these communities. One method used in rural communities in Great Britain is to construct an "entrance" to the community with a short span of brick pavers and a special warning sign that asks motorists to slow their speed and watch for pedestrians and cyclists.

Rural Recreational Touring Routes

Bicycle touring has become a popular vacation and short-trip recreation activity throughout America. Some rural Iowa counties have already begun to develop bicycle route networks to serve touring cyclists. Bicycle touring routes should guide cyclists to scenic and suitable backroads. Paved shoulders are preferable for rural bicycle routes. Touring routes should avoid roads that are excessively dangerous for cyclists, such as those with very high traffic speeds and sharp turns.

Several route options can be provided for touring cyclists:

• Looped routes of 16 to 64 kilometers (10 40 miles) in circumference can traverse scenic areas and points of interest.
• Long distance touring routes should connect to adjacent counties. The interconnected network should enable a cyclist to cross through the state in a direct manner.

Touring routes should be linked to the internal bicycle network in urban areas and small towns. It is essential to develop a bicycle map and clear signing for established touring routes. Maps can identify points of interest such as parks, historic sites, small communities, ice cream shops, bed and breakfast inns, etc.

Product/Action

• Install sidewalks in downtown areas, if lacking.
• Work with state and county to get roadway shoulders paved.
• Work with county and other local governments to create routes and maps and to install signs.
• Design and manage the rural highway system to allow shared use by bicyclists and pedestrians - generally on paved shoulders.
• Increase tourism and recreational opportunities through preservation of rural character and bicycle/pedestrian friendly highways.
• Promote safe walking and bicycling through education of motorists, bicyclists, and pedestrians - "Share the Road" signs should be used on preferred routes.
• Maintain rural paved shoulders.

College Towns

College towns are typically those in which development has been strongly influenced by the presence of a college or university. There is usually a central destination for work, school, and shopping, though the population in these towns fluctuates in response to the university or college calendar.

Demographics

Iowa college towns are associated with a young, educated population. The colleges tend to attract a higher income and more diverse population due to the cultural and other amenities available at the schools. The demographics of these communities suggest that there is a low level of car ownership and a high percentage of walkers and cyclists.

Journey to Work Census information shows that typical college towns have some of the highest percentages of workers who commute by biking or walking. Along with the high level of social acceptance, the density of the campus setting is conducive to walking and cycling. Students are usually young, live close to campus, and often lack other means of transportation. The National Bicycle and Walking Study researched levels of bicycle commuting in 20 cities across the country. The report concludes that, "the most significant variable appears to be the dominating presence of a university. These cities have considerably higher rates of bicycling than other cities. In fact, no other factor correlates so consistently with high levels of bicycle commuting."

College campuses often generate mixed-use, densely populated communities. Student apartments close to campus are filled to capacity and nearby business districts are supported by students who arrive on foot and by bicycle.

Connection to Campus

Clear and direct on-road bicycle facilities should provide suitable routes for students between home, campus, and other destinations. Reduced automobile traffic on congested streets surrounding the campus could increase opportunities for bicycling and walking.

On-campus Bicycling

Many universities across the country have implemented successful on-campus bicycle systems, including the University of California at Davis, University of Wisconsin at Madison, the University of Colorado at Boulder, and Cornell University in Ithaca, New York. Campus cyclists must operate in a complex network of interconnecting pathways, sidewalks, and roadways. They are often viewed as reckless as they travel between these environments. Good planning and design can reduce conflicts.

University transportation engineers have developed organized spaces for bicycles on campus. They have established "bicycle dismount zones" on pathways where bicycle and pedestrian traffic are in conflict; clearly marked transition areas between campus pathway systems and on-road bikeways; and educational programs for cyclists and motorists.

Bicycle Racks in University Areas

Bicycle parking on university campuses is a key issue. If racks are not provided, riders lock their bicycles to any stationary object near their destination. Bicycles locked to stair railings at entrances can create a hazard by impeding emergency access to buildings. Furthermore, poorly designed and badly located bicycle racks leave riders no choice but to attach their bicycles to trees, benches, and railings.

The first step in providing adequate bicycle parking is to inventory legally and illegally parked bicycles at locations throughout campus. This should provide a general idea of the number of new parking spaces needed (see Appendix One for Bicycle Parking guidance).

Periodic reviews of campus bicycle parking facilities should be conducted to identify maintenance needs and areas where more bicycle racks are needed.

Product/Action

• Work with the college to make the campus, major buildings, and other facilities of universities and educational institutions fully accessible to pedestrians and bicyclists, within a radius of at least three miles.
• To improve safety, extend pedestrian route networks, shorten existing pedestrian routes, and increase advantages of walking.
• Orient transportation systems in college and university towns towards the movement of people instead of vehicles to, from, and within campuses.
• Decrease the need for valuable parking spaces by increasing the development of bikeways, walkways, and secure bicycle parking facilities.
• Use traffic calming techniques to make the bicycle and pedestrian environment more appealing.
• Legitimize walking and bicycling through education of motorists, bicyclists, and pedestrians.