HomeMy WebLinkAbout11-446SEPTEMBER 27, 2011 11 -446 RESOLUTION
(CARRIED 6 -1 LOST LAID OVER WITHDRAWN )
AS AMENDED
PURPOSE: APPROVE CITY OF OSHKOSH PEDESTRIAN AND
BICYCLE CIRCULATION PLAN
INITIATED BY: COMMUNITY DEVELOPMENT
PLAN COMMISSION RECOMMENDATION: Approved
WHEREAS, a "Pedestrian and Bicycle Circulation Plan" has been prepared with
input and support provided by a Stakeholder /Steering Group, Parks Advisory Board,
Sustainability Advisory Board, Traffic Review Advisory Board, Plan Commission, the
Common Council and the community at large; and
WHEREAS, said Plan sets forth recommendations, to develop sound strategies
for improving pedestrian and bicycle transportation throughout the Oshkosh area, with
connection to surrounding extraterritorial areas; and
WHEREAS, the attached "Suggestions /Comments" reflects input received at
various public informational meetings and entities noted above regarding said Plan;
and
WHEREAS, the Community Development Department recommends the attached
"Suggestions /Comments" be adopted and incorporated as an appendix into the
Pedestrian and Bicycle Circulation Plan; and
WHEREAS, the Plan Commission, Parks Advisory Board, Sustainability Advisory
Board, and Traffic Review Advisory Board recommend adoption of said Plan and the
attached "S ggestinns /Commo by the Common Council.
NOW, THEREFORE, BE IT RESOLVED by the Common Council of the City of
Oshkosh that the "Pedestrian and Bicycle Circulation Plan ", on file at the City Clerk's
Office, and the attached "S ggestinns /Comments" are hereby approved and adopted.
* *Bold, Italics & strikethrough indicates amendment
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The complete Oshkosh Pedestrian and Bicycle
Circulation Plan is available at:
http: / /www.ci.oshkosh.wi.us /Community Development /Pla
nning Services /pedestrian bicycle plan/index.htm
EXECUTIVE SUMMARY
1.1 Introduction
The City of Oshkosh has prepared this 20 -year Pedestrian and Bicycle Circulation Plan to
develop sound strategies for improving pedestrian and bicycle transportation throughout
the Oshkosh area. The planning area includes the City of Oshkosh with connection to
surrounding extra - territorial areas.
Oversight on this project has been provided by the Pedestrian and Bicycle Plan
Stakeholder /Steering Group, a working team formed of interested citizens, representatives
from various organizations and city departments. The group was responsible for providing
direction and review of plan components through an extensive series of workshop meetings.
The process also included multiple public information Meetings and public hearings.
1.2 Existing Conditions
The Oshkosh area consists primarily of a grid pattern street system that is altered by the
area's waterways such as the Fox River and Lake Winnebago. As a result, bridges are a
major concession for bicycle and pedestrian travel. The prevalent transportation pattern
evident in Oshkosh is the use of all of the street width for motorized traffic on most major
collectors and arterials. In many cases, the street is divided into four narrow travel lanes,
with no terrace and with the sidewalk, if present, abutting the street.
The Oshkosh urbanized area is connected to the surrounding rural areas by a system of
State and County highways. United States Highway (USH) 41 provides the primary north -
south route through the area. Travel east to west is accommodated through Highways 21,
Witzel Avenue, 9th Avenue, West 20th Avenue and South Park Avenue. Bicycle and
pedestrian travel is prohibited on USH 41. Currently, bicycle and pedestrian
accommodations on the bridges and underpasses of USH 41 are through the newly
constructed or planned round -a -bout network but connections to these new facilities are
inadequate, and in many cases not present.
Census 2000 indicates workers living in the Oshkosh area had an average commute time of
16 minutes. Connections between places of residence to place of employment are integral
to increasing mode share. Providing safe and adequate facilities along these "commuter
routes" creates opportunities for commuters who want to bike to work the opportunity to do
so. Similarly, connections to area trails, such as the Wiouwash State Trail and the USH 41
Lake Butte des Marts trail will increase comfort levels for bicyclists of all abilities.
Transportation systems and land use patterns have a well- documented reciprocal
relationship. As Oshkosh has grown, the demands for transportation system improvements
have also grown. However, these transportation improvements have also provided more
convenient access to land farther out, thus spurring outward growth. More than any other
transportation system, it has been the road network and the prevalence of the automobile
that has impacted land use patterns over the past half- century.
CITY OF OSHKOSH BICYCLE AND PEDESTRIAN PLAN I- I
Notable land use patterns or issues for the City of Oshkosh and Winnebago County
include:
• Water divides the urbanized area between north to south and to a lesser extent
from east and west.
• Development is often not contiguous; in general, Oshkosh has its distinct areas of
both residential and commercial development. In many cases, water, or
undeveloped land separates Oshkosh from our neighboring communities.
• Development as it exists today directly corresponds to the freeway system.
Walking is often overlooked and undervalued as a transportation mode. Yet, in the Oshkosh
area, 3.3 percent of commuters reported regularly walking to work. These percentages do
not include other pedestrian activity, such as walking trips to schools and universities,
commercial areas or for recreation. Many of these pedestrians are children, seniors and
persons utilizing wheelchairs or mobility devices who require special consideration regarding
facility design.
Areas where there are gaps in the bicycle and pedestrian system include any place there is
a lack of biking or walking facilities, maintenance issues, or areas where bike paths and
major routes should connect to other routes, recreational areas, residential areas, commercial
centers or employment centers. Noteworthy gaps included the difficulty of bicycle travel
under or over USH 41, on many collectors and arterials throughout the city and on the
bridges that span the Fox River. A general comment from the public about these gaps
includes the usability of these areas on a year -round basis. The quick and effective removal
of snow can be an issue when not done with respect to crosswalk locations or curb lanes.
1.3 Recommendations and Implementation
Recommendations were developed using an inventory and analysis of existing facilities,
Ordinances, and plans as well as suggestions /comments from the public, city staff and the
Pedestrian and Bicycle Plan Stakeholder /Steering Group. Recommendations include a
principal or overriding recommendation to establish an official City of Oshkosh Bicycle and
Pedestrian Commission, bicycle and pedestrian program recommendations, general facility
improvements, route configuration, and implementation strategies, including a timetable for
expansion of the bicycle network.
1.3.1 Bicycle and Pedestrian Commission Recommendations
The creation of an official Bicycle and Pedestrian Commission, functioning similar to other
existing city boards /commissions, would hold regular meetings and be charged with the
responsibility of reviewing, amending and implementing the recommendations and initiatives
included within this plan.
1.3.2 Bicycle and Pedestrian Program Recommendations
Bicycle and pedestrian program recommendations include education, encouragement, and
outreach programs; enforcement; facility maintenance and policy recommendations.
CITY OF OSHKOSH BICYCLE AND PEDESTRIAN PLAN 1-2
Education, encouragement, and outreach programs were designed to foster a safe bicycling
and walking environment and increase the prevalence and enjoyment of walking and
bicycling. Successful encouragement and outreach efforts largely rest on a foundation of
extensive and effective educational programs. Education programs include identifying safe
routes for bicyclists and pedestrians, teaching bicycling techniques, disseminating information
regarding regulations that govern bicyclists and pedestrians, and instructing bicyclists and
pedestrians how to handle potentially dangerous situations. Encouragement activities are
valuable because they promote biking and walking through incentives (such as rewards) or
provisions (such as safe and convenient parking facilities). Outreach activities are among the
easiest and least cost intensive initiatives that advance bicyclist and pedestrian safety.
Consistent enforcement of traffic laws also plays an important role in advancing bicyclist and
pedestrian safety. Likewise, maintenance is important for all types of transportation
facilities. Periodic and consistent removal of debris and resurfacing /patching of
deteriorated pavement are important procedures for ensuring that users are provided with
safe and reliable transportation facilities.
1.3.3 General Facility Improvements
While useful to encourage and sustain walking and bicycling, operational programs and
policies are futile without adequate facilities. Too often, facility planning is synonymous with
planning separate trail systems. However, separated bike /pedestrian paths and bike lanes
are the most costly of all facility improvements. Because of their costs and the amount of
public right -of -way needed to accommodate these systems, separate bikeways seldom form
a complete bicycle and pedestrian system. For the City of Oshkosh, it is most efficient and
cost effective to make use of established transportation right -of -ways, especially within the
older developed areas of the City. Trails and sidepaths are mainly utilized in newer areas
of Oshkosh, at natural corridors and where physically and economically feasible.
Signing bike routes direct pedestrians and bicyclists to the preferred routes and also helps to
direct visitors from outside the community to their desired destinations safely and efficiently.
The routes also increase the likelihood that motorists will encounter bicyclists which may
heighten driver attentiveness and bicyclist confidence. All bike routes within Oshkosh are
recommended to be signed, whether they have bike lanes, sharrows, wide curb lanes, or are
simply shared -use roadways.
As important as bicycle facilities are for increasing mobility, it is also critical to maintain a
comprehensive vision for creating a "walkable" and "bikable" Oshkosh, which includes bike
lanes, shared roadways, mulit -use trails, sidepaths and sidewalks. Not only does this plan
recommend specific facility improvements, it sets policy priorities and offers guidance and
tools to help promote bicycling and pedestrian safety, efficiency and effectiveness.
The overriding principle for bicycle and pedestrian friendly streets is to create public right -
of -ways that work effectively for and benefit all modes of transportation. Regardless of
whether streets and roads are included in this plan's designated bicycle network, bicyclists
will use all available roads. Therefore, the recommended bicycle network has been
developed to formalize safe routes from "origins" to "destinations ", eliminate gaps within the
current network, continue the expansion of the existing off -road facilities utilizing natural
and other areas of opportunity, and improve access and connectivity for the bicyclist within
the Oshkosh community.
CITY OF OSHKOSH BICYCLE AND PEDESTRIAN PLAN 1- 3
Best facility practices must be considered when any transportation network is developed,
reconstructed or augmented. Policy and project priorities for pedestrians are much more
programmatic while those for bicycles tend to be more physical in nature.
Pedestrian Facilities
Oshkosh's pedestrian framework is partially in place in that sidewalks or trails are required
for new subdivisions and other development. Sidewalks form the backbone of the physical
portion of our pedestrian transportation network, however, what constitutes a "pedestrian -
friendly" or "walkable" community is much more than merely having sidewalk facilities in
place. High quality, navigable, appropriately sized sidewalks certainly are one part of the
equation; however, other elements and amenities such as crosswalks, signalization, traffic
calming, pedestrian -scale lighting, street furniture, and space separating vehicle traffic lanes
from sidewalks are also extremely important. Best facility practices for Oshkosh pedestrian
facilities include three primary facility types:
• Sidewalks - paths located within a right -of -way along the side of a road and are
normally separated from the vehicular section by a curb
• Sidepaths - segregated facilities located next to or alongside a roadway separated
from motor vehicle traffic by a physical barrier and /or increased greenspace.
• Multi -use trails - segregated trails or paths located within their own right -of -way or
easement area and are not closely associated with a roadway.
Bicycle Facilities
Suitably designed bikeways can be identified formally as "Bike Routes." These routes
indicate a major route that most bicyclists will feel comfortable using.
This plan recommends a comprehensive and interconnected bicycle network by suggesting
a facility type (bike lane, sharrow, multi -use trail) throughout the Oshkosh area. It is
important to state that the design approach behind the recommended bicycle facility
types and routes contained within this planning document was guided and shaped with a
critical design consideration in mind.
Design approach
The fundamental design consideration behind route determination that must be described is
what type of bicyclist is best served by the City's bicycle facility network. The Bicycle and
Pedestrian Stakeholder /Steering Group made the decision that all network route and
facility choice decisions had to be made with the basic bicyclist in mind, not the novice or
advanced rider. To this end, the design approach contained the principal of locating
designated bicycle routes off unsafe, high traffic volume streets & truck routes, wherever
possible. Furthermore, the group also focused on route placement as it related to existing
traffic controlled intersections and the separation of bicycle travel from vehicular traffic such
as the utilization of park properties, greenways and rail corridors
The proposed recommended improvement is delineated into three sections that correlate
with facility recommendations:
• Signed and striped roadways - a portion of the roadway which has been
designated by striping, signing and other pavement markings for the preferential or
exclusive use by bicyclists.
• Signed and /or shareways - also known as stripeless bike lanes, do not have
corridors reserved for bicyclists, but signs and pavement symbols indicate that they
CITY OF OSHKOSH BICYCLE AND PEDESTRIAN PLAN 1-4
are bike routes and heavily used by bicyclists.
■ Multi -use trail - segregated trails or paths located within their own right -of -way or
easement area and are not closely associated with a roadway.
Short range (0 -5 years) recommendation cost estimates are included in the plan but
estimates for longer term recommendations (6+ years) are not as they would not be useful
because their timeframes are too far out to be realistically calculated.
Recommendations within the plan are assigned a "Timeframe" based on the ability to develop
in a timely manner and their importance in meeting plan goals and objectives. Priority for
facilities was done with an assumption that they could be completed within the allotted
timeframe, they create a connected network on the interim and that "funds were
available ", as predictions on funding levels could not be accurately estimated. Facility
development fall under two headings:
• Priority Facility Improvements 0 -5 years
• Future Facility Improvements 6 or more years
Recommendations within the first five -year timeframe are viewed as the most vital for
fulfilling the short -term goals of the Bicycle and Pedestrian Stakeholder /Steering Group and
also represent existing planned projects that will soon be implemented. Future Facility
Improvement recommendations are longer -term desires requiring a more sustained effort to
implement.
As many of the recommendations within the plan require coordination with roadway
reconstruction and potential property acquisition, especially in the case of bike lane and
multi -use trail development, an interim solution to connect system facilities must be the
temporary use of signed and /or shared facilities, especially if sign and striped facilities
(bike Lanes) are included as part of the long-range/future facility improvement schedule.
Therefore, flexibility in facility development, using a less intensive facility such as
sharrows/signage or simply signage when bike lanes are determined to be unfeasible or
are a longer timeframe out are recommended at the time a facility is being created. It is
very important that the City consider all facilities, such as automobile parking, bike
lanes /sharrows, terrace, etc. to determine which are most important. The aim of this plan is
to maintain a balance of transportation related needs in the community. It is not intended
that the recommendations be implemented as a "winner takes all" scenario but a "win -win"
between potentially competing interests.
The road diet concept (reducing the number of travel lanes located on a roadway) may be
an appropriate and feasible technique to gain right -of -way area for bike facility
installation and pedestrian safety. However, the Bicycle and Pedestrian
Stakeholder /Steering Group has not formerly recommended road diets for any specific
streets as they believe they need further study on an individual street -by- street basis during
restriping or reconstruction.
1.3.4 Development and Maintenance Costs
Development cost estimates for on- street facility types within the plan were determined by
using actual costs experienced by Sheboygan County, WI and are current in 2011. Trail
cost estimates are based on the development of trails including the Badger State Trail
(linking Madison to Fitchberg), which was completed in 2010.
CITY OF OSHKOSH BICYCLE AND PEDESTRIAN PLAN 1-5
Maintenance cost estimates were derived from various state and municipal sources with the
assumption that restriping /resymbolization would be necessary every three years. Trail
maintenance cost estimates are derived from the American Trails Partnership based on
surveys of their membership.
1.4 Funding Opportunities
The Plan recommends that the City of Oshkosh appropriate annual funds for bicycle and
pedestrian improvements just as it does for other roadway projects. In addition, bicycle and
pedestrian projects may be eligible for state or federal funding. Pedestrian improvements
that benefit public health and safety should be funded through the general fund,
supplemented by available state and federal grants, rather than through assessment.
1.5 Appendices
The plan is supplemented by seven appendices that are referenced within the document and
help to provide information that is readily accessible and /or would potentially be "lost"
within the body of the document. These appendices are described below:
Appendix A: City of Oshkosh Bicycle and Pedestrian Plan Survey Results- A survey to solicit
information regarding biking and walking within Oshkosh by Oshkosh residents and visitors.
Posted on the web as well as provided at bicycle and run /walk events.
Appendix B: Origins and Destination Maps- Origin and destination maps were derived from
the initial public informational meeting identifying where interested parties are coming from
and going to as well as areas of concern.
Appendix C: Proposed 41 Bicycle and Pedestrian Improvements - This appendix details
improvements proposed by the Department of Transportation.
Appendix D: Pedestrian Hazard Areas- Areas and intersections identified as pedestrian
hazard areas such as schools, parks, and commercial areas as well as long blocks that
should be given special attention.
Appendix E: Recommended Bicycle Route /Improvement Maps- Depicts the recormended
bicycle facility network including routes, facility types and areas of intersection
improvements.
Appendix F: Priority Facility Improvement Map- Depicts the recommended bicycle facility
considered to be "priority" and that can be developed within a five year period.
Appendix G: Supplemental Road Diet Information- Information, primarily articles and
study's, which describe the Road Diet concept.
CITY OF OSHKOSH BICYCLE AND PEDESTRIAN PLAN I - 6
0
QIHKOf H
ON THE WATER
TO: Honorable Mayor and Members of the Common Council
FROM: David Buck, Planning Services;,,�wwf
DATE: September 27, 2011
RE: Resolution Adopting the City of Oshkosh Pedestrian and Bicycle Circulation Plan
(Sustainability Advisory Board, Parks Advisory Board, Traffic Review Advisory
Board, and Plan Commission Recommend Approval)
BACKGROUND /ANALYSIS
The City of Oshkosh Comprehensive Plan approved by Common Council in March of 2005,
listed "Update the Pedestrian and Bicycle Circulation Plan" as one of 13 High Priority
Implementation Actions in the plan. The Common Council included a line item in the 2008
Capital Improvement Program to update the 1998 Pedestrian and Bicycle Circulation Plan.
A consultant was hired in May of 2009 for said purpose. A Stakeholder /Steering Work Group
(with a wide variety of interests /organizations represented) was formed in June of 2009 and a
Public Informational meeting was held in August, 2009 (with approximately 60 people in
attendance) where comments and ideas regarding the plan update were solicited resulting in the
identification of priority corridors, origins /destinations of pedestrians and bicyclists, trouble
spots in the community and examples of how the citizens wished the system to operate. Surveys
(with over 500 responses) were conducted to gather specific community bike and pedestrian
information and further community outreach at various events (such as the Tour de Titan,
Granny Smith 5K Run/Walk and UWO Transportation Fair) were done in October & November
highlighting the potential for Oshkosh as a bike /pedestrian friendly community and promoting
survey response.
A draft plan was received by the City from the consultants in February, 2010 and was distributed
to the Stakeholder /Steering Group for review. The Stakeholder /Steering group met in February
and March of 2010 and determined that it would be necessary to fully review the plan and make
fundamental changes to it including entirely new routes and complete rewrite of most chapters.
The Stakeholder /Steering group meetings took place from April 2010 -May 2011 and a final draft
was completed in June 2011. A joint meeting of the Sustainability Advisory Board, Parks
Advisory Board, Traffic Review Advisory Board, Plan Commission and Common Council was
held in July 2011 to provide an opportunity for those Commissions/Boards that are most
associated with pedestrian and bicycle travel to get an introduction of the plan and hear a
summary of its content and recommendations prior to individual reviews at their respective
commission/board meetings. Following the joint meeting, the plan was brought before the
Sustainability Advisory Board on August 1 the Parks Advisory Board on August 8 the
Traffic Review Advisory Board on August 9 and the Plan Commission on August 16 All of
the aforementioned Commissions /Boards recommended adoption of the plan and provided
comment and suggestions for changes. A second Public informational Meeting was held (with
approximately 80 people in attendance) to "unveil" the draft plan on August 11 and also to
solicit feedback on its recommendations. Finally, a Common Council workshop was held on
August 23 to discuss the plan and suggested changes.
A copy of the Draft Plan was distributed to Council members in early July, 2011 for the Joint
Workshop. Attached to the Resolution is the plans Executive Summary and a list of
recommendations and changes gathered from public input, the individual Commissions /Board
meetings and the public informational meeting. When Council acts on the plan, the
suggestions /changes will be included as part of the adopted plan unless Council chooses to
amend them.
FISCAL IMPACT
Most recommendations within the plan are assigned a " Timeframe" based on the ability to
develop in a timely manner and their importance in meeting plan goals and objectives. Priority
for facilities was done with an assumption that they could be completed within the allotted
timeframe, create a connected network on the interim and that "funds were available" as
predictions on funding levels could not be accurately estimated. Priorities fall under two
headings: 1) Priority Facility Improvements (0 -5 years) and 2) Future Facility Improvements
(6 or more years) with cost estimates provided for priority facility improvements only.
Recommendations within the first five -year timeframe not only represent new facilities; they
represent existing planned projects that will soon be implemented. The plan provides a cost
estimate for facility improvement development for the first five -year timeframe at
approximately $65,000 for signed and shared roadways and approximately $108,000 for signed
and striped (bike lanes) roadways for a total of approximately $173,000 for on- street
improvements. Additionally, an estimate range of approximately $180,000 - $372,000 is
identified for off -road multiple use trails, though a vast majority of these trail facilities are
currently constructed or under construction utilizing separate funding sources. It is important to
note that cost analysis for each facility type for each specific recommended facility must be
conducted on a case -by -case basis as the general estimates used will not reflect actual costs.
The Stakeholder /Steering Group's direction and intent was to develop a flexible plan that could
respond to different funding /resource scenarios that may occur. The plan recommends that the
City of Oshkosh appropriate annual funds for bicycle and pedestrian improvements just as it does
for other roadway projects but adds that bicycle and pedestrian projects may be eligible for state
or federal funding for which the City should investigate and alternate funding strategies through
potential impact fees and private interests should also be considered.
It is important to note that adoption of the plan does not obligate the Common Council to enact
any of its recommendations. Rather, adoption of the plan would give staff the direction on how
to manage /implement the plan according to resources that may or may not be available.
RECOMMENDATION
The Planning Department recommends adoption of the draft Pedestrian and Bicycle Circulation
Plan as presented with or without amendments. Upon Common Council vote for adoption, the
Transportation and Planning Departments will work to help prioritize and structure
implementation of plan recommendations.
Approved,
City Manager