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Home My WebLink About11-15-18 Bike and Ped Packet /ia Oshkosh TO: Bicycle and Pedestrian Advisory Committee FROM: Alexa Naudziunas,Assistant Planner DATE: November 8, 2018 SUBJECT: Meeting Notice and Agenda for November 15, 2018 A meeting of the Bicycle and Pedestrian Advisory Committee will be held on Thursday November 15,2018 at 4:00 p.m. in room SB1, Safety Building, 420 Jackson Street, Oshkosh, WI 54901. The following items will be considered: 1. Call to Order 2. Approval of October 18,2018 Meeting Minutes 3. Westhaven Drive Petition -Action 4. Bicycle and Pedestrian Circulation Plan update-East Central Wisconsin Regional Planning Commission 5. Agenda Items for the Future Meeting(s) 6. Adjournment If unable to attend the meeting, please call the Planning Services Division at 236-5059 or email Alexa Naudziunas at anaudziunas@)ci.oshkosh.wi.us and let her know, so we are assured a quorum will be present. City Hall,215 Church Avenue P.O.Box 1130 Oshkosh,WI 54903-1130 http://www.ci.oshkosh.wi.us BICYCLE AND PEDESTRIAN ADVISORY COMMITTEE MINUTES -October 18,2018 PRESENT: Adam BellCorelli,Jim Michelson,Brad Brown, Ben Rennert,Jay Stengel ABSENT: Vicky Redlin, Lori Palmeri STAFF: Assistant Planner;Alexa Naudziunas 1. Call to Order Mr. Michelson called the meeting to order at 4:04 p.m. 2. Approval of September 20,2018 Meeting Minutes Mr. Stengel moved to approve September 20, 2018 meeting minutes and Mr. Rennert seconded the motion. Motion carried unanimously. 3. Pedestrian Roundabout Safety Day-Recap and Review Ms. Naudziunas and the committee recapped the second pedestrian safety day and compared it to the event that was organized last September. The event was on September 25t1, at 2:30 pm through the Witzel Avenue roundabouts. Ms. Naudziunas mentioned that the committee might want to think of a new type of event or activity for next year. 4. Bike and Pedestrian Master Plan Update The committee reviewed chapter six and seven of the plan and provided comments and feedback. 5. Agenda Items for the Future Meeting(s) The committee expressed an interest in continuing to review chapters from the Bike and Pedestrian Master Plan. The committee discussed the potential of branding a designated route within the city as a marketing tool to promote recreation in Oshkosh. The route they are researching generally follows the riverwalk and tribal heritage crossing, making a complete loop of just under 10 miles in distance. Ms. Naudziunas reminded the committee that the November meeting will be held in the Safety Building conference room one. 6. Adjournment Mr. Rennert moved to adjourn the meeting and Mr. BellCorelli seconded the motion. Motion carried unanimously at 5:00 p.m. Recorded by Alexa Naudziunas, Assistant Planner r .. V/s WE, THE ITN E SIGNS �PETITImM THE CITY OF OSHKOSH TO REMOVE 1THE BIKE LANES ON THE EAST SIDE OF NORTH WESTHAVEN DRIVE BETWEEN WITZEL AVE AND HIGHWAY 21. WE FEEL.T14AT HAVING BIKE LANES ON THE WEST SIDE OF NORTH WESTHAVEN DRIVE IS �R S[JFFI�IENT AS T E WEST SI EGNSISTS NLY F AI'A 'T ENT g '/13 UILLIINGS WHICH HAVE THEIR OWN PARKING. WE HAVE NO J�A. I2I�ING ON E STREET IIICIII CGNSISTS (�F SEVERAL CONDOS AND `q VATS HOMES. ,. . ._ NAME ADDRESS � F yrs IV, �p m __._..,_...__ W . 7N 0j -1-A(xo(-"v( 0/v , .r 9 C..I. �, ✓ r WE, THE LTNDERSIGNEDYE'TIT'ION THE CI'T'Y OF OSHKOSH REMOVE THE BIKE LANES ON THE EAST SIDE OF NORTH WESTHAVEN DRIVE BETWEEN WITZEL AVE AND HIGHWAY 21. WE FEEL THAT HAVING BIKE LANES ON THE WEST SIDE OF NORTH WESTHAVEN DRIVE IS SUFFICIENT AS THE WEST SIDE CONSISTS MAINLY OF APARTMENT BUILDINGS WHICH HAVE THEIR OWN PARKING. WE 114AVE N PARKING ON THE STREET WHICH CONSISTS OF SEVERAL CONDOS ANIS PRIVATE E G ES. NAME ADDRE SS ILI nom ; CITY OF OSHKOSH BICYCLE AND PEDESTRIAN MASTER PLAN 2011 PLAN Adopted by the Oshkosh Plan Commission August 16, 2011 Approved by the Oshkosh Common Council September 27, 2011 2018 PLAN Adopted by the Oshkosh Plan Commission XXX 2019 Approved by the Oshkosh Common Council XXX 2019 OSHKOSH COMMON COUNCIL Mayor Steve Cummings Deputy Mayor Steve Herman Thomas R. Pech Jr. Debra L. Allison-Aasby Caroline Panske Jake Krause Lori Palmeri BICYCLE AND PEDESTRIAN ADVISORY COMMITTEE James Michelson, Chairman Adam BellCorelli Brad Brown Lori Palmeri Vicky Redlin Benjamin Rennert Jay Stengel 116 iii ""' � a uuuu"uu uu uuuuuuuuuuuuuuuuuuuuuuuuuuuuuu��uuuuuuuuuuuuuuuuu uuuuuuuuuuP��iiYuu��uuV �� %�� 1 Www i TABLE OF CONTENTS CHAPTER a EXECUTIVE SUMMARY .1 Introduction 2 1.2 Existing Conditions 3 1.3 Recommendations and Implementation 3 .4 Funding Opportunities 5 1.5 Appendices 5 CIII°IAII)TEIII12: III TOIII DUCTIOII II1I,.AI I III G II)III100I..'ISS 2„1,. Why is this plan important? 8 2„2 How was this plan developed? 9 2„3 Definition of Terms 9 2„4 Planning Process 11 2...5 Bicycle and Pedestrian Plan Stakeholder/Steering Group 11 2„6 Survey 11 2.7 Public Meetings 12 CI°IAP"'II"'Ell 3m VISION &GOAIII,,,S 3„.,1 Vision Statement 3 - 1 3„2 Six E's 3 - 4 Education Encouragement Enforcement Engineering Evaluation Equity 3„3 Goals and Objectives 3 - 1 CHAPTER 4: CURRENT CONDITIONS AND SAFETY 4.1 Assessment of Bicycle and Pedestrian Friendliness 4- 1 Bridge Access 4- 1 Street and Highway System Access 4- 1 Bicycle and Pedestrian System Access 4- 2 Transit Interface 4- 3 4.2 Community and User Characteristics 4- 3 Socioeconomic Data 4- 4 Travel to Work 4- 4 Land-Use 4- 5 4.3 Inventory and Assessment of Existing Facilities 4- 5 Biking Conditions 4- 5 Walking Conditions 4- 7 4.4 Bicycle and Pedestrian Statutes and Ordinances 4- 9 4.5 Existing Plans 4- 10 4.6 Crash Statistics 4- 1 Bicycle Crashes and Countermeasures 4- 2 Pedestrian Crashes and Countermeasures 4- 3 0:WI' ER 5: IIACIL...I IR 112r PRAC n IV ° S 5 .i. Alternatives for Improved Bicycle and Pedestrian Facilities 5 - 1 E.2 Bicycle Facilities (Need Chart from Kim) 5 - 2 •Signed and Shared Roadways 5 - 2 •Striped Bike Lanes 5 - 4 •Sharrows 5 - 7 •Wide Curb Lanes 5 - 9 •Paved Shoulders 5 - 10 CI°°IIIAI°)I""Eli 6m III!MCO I'; NA ..I""III' IRS 6.1 Primary Recommendation 8 - 1 Establish Commission 8 - 1 6.2 Programmatic Recommendations 8 - 1 Education, Encouragement & Outreach 8 - 2 Enforcement 8 - 3 Facility Maintenance 8 - 3 Policy Recommendations 8 - 4 6.3 Bicycle and Pedestrian Facility Recommendations 8 - 5 Signage 8 - 5 Program Priorities 8 - 6 Network and Facility Improvements 8 - 8 Implementation Tables 8 - 10 6.4 Cost of Developing & Maintaining Facilities 8 - 19 Facility Development Costs 8 - 19 Cost of Maintaining Facilities 8 - 19 Facility Maintenance Responsibility 8 - 20 6.5 Funding Opportunities 8 - 20 Specific Funding Opportunities 8 - 21 6.6 Plan Amendment Process 8 - 22 APPENDICES Appendix A: Bicycle and Pedestrian Master Plan Survey Results Appendix B: Recommended Bicycle Facilites Maps Recommended Facilities Map Implemented Facilties Map Combined Map Appendix C: Priority/CIP Facility Improvement Map Appendix D: Pedestrian Hazard Areas Appendix D: Crash Map +�' iillyll 11"uuu P�Niv �uVl"CC`S VVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVV )� ��, r�% //%%JI�/,»>;»/�%%° / ///�/ '_' "�� ` �I I i uum 44i11��lll��VIII III i i II��"'��l j��' � 1� J YY III YYYYYYYYYYY YYY YY Y , �ri �� „ � � �� .. W � � � �,� �� , ,, uu ��,� �,, ,, _, �� ,, ,, , �� ,, _, � _ �� i , �� . � �� / 1 � � � .� , � � , / � ,,, � 1 ,,, � / „� �� . . 1 %� ,� 1 . 1,1 . � � ,,� .��i�, /. �� i o JIJ � � ��%��j�� i��i%///%/Djiir;; �� ,,, ��/////////�/�%;/, j///////////��////%/�� , %i�� //iii��,i��/�,,,,,,,,, �� r Yw,� �� r„ ;� r��, y.. .,-;.�,, Wpi �, �, � �, �. �� r �„� „ I � � �� ' ez., i1 -� r,F, � r:ar' i„ -,�� ' if ��, i��1 '� X1,16, IPI II, ��i� ii iti'�u�ti�� i,,, i i �� w � ,; ,�� l f, � / /� � %// j ��////,,,i,,,�f r�� '; , 1 �� r�� /////////� � f�� '��, I ,,/ , � � , � � ///i/ ,, / . i �� t� �/� � � ,/i ,, � �� ,/ ��/ �� %�� o� �� , /�///,,r' � �% � �� I � i � r, r�� l ,� )I I liiiii um I �,�f"" ` uuuuuum ouuuuum uuuuui,ll� it V ul i1 I v � � �� ` f ,,,,,, �/i,,, 9�I � ��III II� � ��//� {� r %%% I �f ah o�„s;", � � �� . mjllVp ' 1 � ��li ��,I /��/a,, I ��, `i i �. ��' �/ �, � � � Y' Y,I�� Iliiiil ...� �� %%/ /�/ ,,,, �„iii: � a,.. 1 � our a i I r 1 EXECUTIVE SUMMARY 1.1 INTRODUCTION The City of Oshkosh has prepared this 20-year Bicycle and Pedestrian Master Plan to develop sound strategies for improving pedestrian and bicycle transportation throughout the Oshkosh area. The plan was originally developed in 2011 with the update of the plan occurring in 2018. The planning area includes the City of Oshkosh with connection to surrounding extra-territorial areas. During the 2011 plan development, oversight was 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. And in 2018, the Bicycle and Pedestrian Advisory Committee provided oversight to the update of the 2011 plan. 2 1.2 EXISTING CONDITIONS Notable land use patterns or issues for the City of The Oshkosh area consists primarily of a grid pattern Oshkosh and Winnebago County include: street system that is altered by the area's waterways • Water divides the urbanized area between north such as the Fox River and Lake Winnebago. As a and south and to a lesser extent from east and result, bridges are a major concession for bicycle west. and pedestrian travel. The prevalent transportation • Development is often not contiguous; in general, pattern evident in Oshkosh is the use of all of the Oshkosh has its distinct areas of both residential street width for motorized traffic on most major and commercial development. In many cases, collectors and arterials. In many cases, the street is water, or undeveloped land separates Oshkosh divided into four narrow travel lanes, with no terrace from neighboring communities. and with the sidewalk, if present, abutting the street. Development, as it exists today, directly corresponds to the freeway system. The Oshkosh urbanized area is connected to the surrounding rural areas by a system of State and Walking is often overlooked and undervalued as a County highways. Interstate 41 (1-41) provides the transportation mode. Yet, in the Oshkosh area, 3.4 primary north- south route through the area. Travel percent of commuters reported regularly walking east to west is accommodated through Highway 21, to work. These percentages do not include other Witzel Avenue, 9th Avenue, West 20th Avenue pedestrian activity, such as walking to schools and and South Park Avenue. Bicycle and pedestrian travel universities, commercial areas or for recreation. Many is prohibited on 1-41; however, the Tribal Heritage of these pedestrians are children, seniors and persons Crossing of the Wiouwash Trail runs adjacent to 1-41 utilizing wheelchairs or mobility devices who require over Lake Butte des Morts and allows for bicycle and special consideration regarding facility design. pedestrian travel. Gaps in the bicycle and pedestrian system include Connections between places of residence to place any place there is a lack of biking or walking facilities, of employment are integral to increasing mode maintenance issues, or areas where bike paths share. Providing safe and adequate facilities along and major routes should connect to other routes, these "commuter routes" creates opportunities for recreational areas, residential areas, commercial commuters who want to bike to work. Similarly, centers or employment centers. Noteworthy gaps connections to area trails, such as the Wiouwash Trail include the difficulty of bicycle and pedestrian and the Tribal Heritage Crossing increases comfort travel under or over 1-41 or through roundabouts. A levels for bicyclists of all abilities. general comment from the public about these gaps include the usability of these areas on a year-round Transportation systems and land use patterns have a basis. The quick and effective removal of snow can well-documented reciprocal relationship. As Oshkosh be an issue when not done with respect to crosswalk has grown, the demand for transportation system locations or curb lanes. improvements has also grown. However, these transportation improvements have also provided 1.3 RECOMMENDATIONS AND IMPLEMENTATION more convenient access to areas farther out, thus Recommendations in this Plan's update were spurring outward growth. More than any other developed using an inventory and analysis of existing transportation system, the road network and the facilities, Ordinances, other local plans, reviewing prevalence of the automobile has impacted land use recommendations in the 2011 Pedestrian and Bicycle patterns over the past half- century. Circulation Plan, and through feedback from the City of Oshkosh Bicycle and Pedestrian Advisory Committee. This plan includes recommendations for programs as well as facility enhancements/ improvements. 3 Bicycle and Pedestrian Program Recommendations Signing bike routes direct pedestrians and bicyclists to Bicycle and pedestrian program recommendations the preferred routes and also helps to direct visitors include education, encouragement, and outreach from outside the community to desired destinations programs; enforcement; facility maintenance and safely and efficiently. These routes also increase policy recommendations. Education, encouragement, the likelihood that motorists will encounter bicyclists and outreach programs are designed to foster a safe which may heighten driver attentiveness and bicyclist bicycling and walking environment and increase confidence. All bike routes within Oshkosh are the prevalence and enjoyment of walking and recommended to be signed, whether they have bicycling. Successful encouragement and outreach bike lanes, sharrows, wide curb lanes, or are simply efforts largely rest on a foundation of extensive shared-use roadways. and effective educational programs. Education programs include identifying safe routes for bicyclists As important as bicycle facilities are for increasing and pedestrians, teaching bicycling techniques, mobility, it is also critical to maintain a comprehensive disseminating information regarding regulations that vision for creating a "walkable" and "bikable" govern bicyclists and pedestrians, and instructing Oshkosh, which includes bike lanes, shared roadways, bicyclists and pedestrians how to handle potentially multi-use trails, side paths and sidewalks. Not dangerous situations. Encouragement activities are only does this plan recommend specific facility valuable because they promote biking and walking improvements, it sets policy priorities and offers through incentives (such as rewards) or provisions guidance and tools to help promote bicycling and (such as safe and convenient parking facilities). pedestrian safety, efficiency and effectiveness. Outreach activities are among the easiest and least cost intensive initiatives that advance bicyclist and The overriding principle for bicycle and pedestrian pedestrian safety. Consistent enforcement of traffic friendly streets is to create public right-of-ways laws also plays an important role in advancing bicyclist that work effectively for and benefit all modes of and pedestrian safety. Likewise, maintenance is transportation. Regardless of whether streets and important for all types of transportation facilities. roads are included in this plan's designated bicycle Periodic and consistent removal of debris and network, bicyclists will use all available roads. The resurfacing/patching of deteriorated pavement recommended bicycle network has been developed to are important procedures for ensuring that users formalize safe routes from "origins" to "destinations", are provided with safe and reliable transportation eliminate gaps within the current network, continue facilities. the expansion of the existing off-road facilities utilizing natural and other areas of opportunity, and General Facility Improvements improve access and connectivity for the bicyclist While useful to encourage and sustain walking and and pedestrian within the Oshkosh community. bicycling, operational programs and policies are futile without adequate facilities. Too often, facility Best facility practices must be considered when any planning is synonymous with planning separate trail transportation network is developed, reconstructed systems. However, separated bike/pedestrian paths or augmented. Policy and project priorities for and bike lanes are the most costly of all facility im- pedestrians are much more programmatic while those provements. Because of these costs and the amount for bicycles tend to be more physical in nature. of public right-of-way needed to accommodate these systems, separate bikeways seldom form a complete Pedestrian Facilities bicycle and pedestrian system. For the City of Os- Oshkosh's pedestrian framework is partially in hkosh, it is most efficient and cost effective to make place as sidewalks or trails are required for new use of established transportation right-of- ways, subdivisions and other development. Sidewalks especially within the older developed areas of the form the backbone of the physical portion of our City. Trails and side paths are mainly utilized in new- pedestrian transportation network, however, what er areas of Oshkosh, at natural corridors and where constitutes a "pedestrian-friendly" or "walkable" physically and economically feasible. community is much more than merely having 4 sidewalk facilities in place. High quality, navigable, The proposed recommended improvement is appropriately sized sidewalks are one part of delineated into three sections that correlate with the equation; however, other elements such as facility recommendations: crosswalks, signalization, traffic calming, pedestrian- •Signed and striped roadways - a portion of the scale lighting, street furniture, and space separating roadway which has been designated by striping, vehicle traffic lanes from sidewalks are also extremely signing and other pavement markings for the important. Best facility practices for Oshkosh preferential or exclusive use by bicyclists. pedestrian facilities include three primary facility •Signed and/or shareways - also known as stripeless types: bike lanes, do not have corridors reserved for -Sidewalks - paths located within a right-of-way along bicyclists, but signs and pavement symbols indicate the side of a road and are normally separated from that they are bike routes and heavily used by the vehicular section by a curb bicyclists. •Sidepaths - segregated facilities located next to or •Multi-use trail - segregated trails or paths located alongside a roadway separated from motor vehicle within their own right-of-way or easement area and traffic by a physical barrier and/or increased are not closely associated with a roadway. greenspace. -Multi-use trails - segregated trails or paths located 1.4 FUNDING OPPORTUNITIES within their own right-of-way or easement area and The Plan recommends that the City of Oshkosh are not closely associated with a roadway. appropriate annual funds for bicycle and pedestrian improvements as it does for other roadway projects. Bicycle Facilities Bicycle and pedestrian projects may be eligible for Suitably designed bikeways can be identified formally state or federal funding. Pedestrian improvements as "Bike Routes." These routes indicate a major route that benefit public health and safety should be funded that most bicyclists will feel comfortable using. through the general fund and included in the Capital Improvement Plan, supplemented by available state This plan recommends a comprehensive and and federal grants, rather than through assessment. interconnected bicycle network by suggesting a facility type (bike lane, sharrow, multi-use trail) 1.5 APPENDICES throughout the Oshkosh area. It is important to state The plan is supplemented by four appendices that that the design approach behind the recommended are referenced within the document and help to bicycle facility types and routes contained within this provide information that is readily accessible and/ planning document is guided and shaped with design or would potentially be "lost" within the body of the consideration in mind. document. These appendices are described below: Design Approach Appendix A: Bicycle and Pedestrian Master Plan The design consideration behind route determination Survey Results-A survey to solicit information is best described as what type of bicyclist is best regarding biking and walking within Oshkosh by served by the City's bicycle facility network. The Oshkosh residents and visitors. Posted on the web as Bicycle and Pedestrian Stakeholder/Steering Group well as provided at bicycle and run/walk events. made thedecision that all network route and facility choice decisions had to be made with the basic Appendix B: Recommended Bicycle Facilities bicyclist in mind, not the novice or advanced rider. To Map- Depicts the recommended bicycle facility this end, the design approach contained the principal network including routes, facility types and areas of of locating designated bicycle routes off unsafe, high intersection improvements. traffic volume streets and truck routes, wherever Implemented Bicycle Facilties Map - Depicts facilities possible. Furthermore, the group also focused on which have been implemented since this plan was route placement as it related to existing traffic adopted. controlled intersections and the separation of bicycle Implemented and Recommended Bicycle Facilities travel from vehicular traffic such as the utilization of Combined Map - Depicts a combined version of park properties, greenways and rail corridors recommended and implemented facilities. 5 Appendix C: Priority/ Capital Improvement Program Map - Depicts recommended routes and planned Capital Improvement Program projects. Appendix D: Pedestrian Hazard Areas-Areas and intersections identified as pedestrian hazard areas such as schools, parks, and commercial areas as well as longer blocks that should be given special attention. 6 7 � IIIA uoo ullo IIIIII ar P a, l� i r J gym, 9f a ri H r !du 2 INTRODUCTION & PLANNING PROCESS The City of Oshkosh has prepared this master plan to develop sound strategies for improving bicycle and pedestrian transportation throughout the Oshkosh area for users of varying abilities. The planning area includes the Oshkosh metro area and is illustrated in Appendix B. This document incorporates recommendations from existing planning documents including the 2017 Winnebago County Bicycle and Pedestrian Plan, Comprehensive Plan 2005-2025, the Oshkosh Area Safe Routes to School Plan, the 2007 Oshkosh MPO Long-range Transportation/Land Use Plan and the 1998 and 2011 Pedestrian and Bicycle Circulation Plan. The recommendations are designed to increase transportation safety for pedestrians, bicyclists and motorists. Infrastructure improvements such as sidewalks, marked crosswalks, bike lanes, paved shoulders, multi-use trails and traffic and informational signs are among the type of facilities recommended to improve conditions for the non-motoring public. Opportunities to educate bicyclists about safety and promote bicycling as a viable mode of transportation are discussed. Additionally, recommendations to improve enforcement, equity, and education regarding traffic laws affecting bicyclists and pedestrians are also presented. s 2.1 WHY IS THIS PLAN IMPORTANT? As part of the federal initiative to encourage Before the 1900's, bicycling and walking were multi-modal transportation in general and bicycle common modes of transportation in the United transportation in particular, the Safe, Accountable, States. Transportation infrastructure and land use Flexible, Efficient Transportation Equity Act: A Legacy patterns reflected the need to accommodate these for Users (SAFETEA-LU) requires that long range travel modes. Compact communities allowed people planning of transportation systems include provisions to walk to most destinations. Early urban roads for bicycling and walking. This legislation builds on were originally paved to help bicyclists reach their the Intermodal Surface Transportation Efficiency destinations. As the pace of life changed and vehicles Act of 1991 (ISTEA) and the Transportation Equity were made affordable, bicycling and walking gradually Act for the 21st Century (TEA-21) to supply funds dropped in priority as modes of transportation. and a programmatic framework for investments Since the late 1940's, motor vehicles have been the in transportation infrastructure. SAFETEA-LU also dominant influence on transportation and land use provided funding for all fifty states to initiate a Safe patterns and subsequently, these land use patterns Routes to School program to enable and encourage have changed behavior patterns. The convenience school children (K-8) to walk and bicycle to school. and flexibility of the automobile are easily recognized; however, automobiles are not the most efficient In Wisconsin, bicycling and walking have been mode of travel for many types of trips. The benefits promoted through WisDOT's TransLinks 21 Plan. of alternative modes of travel such as bicycling and This transportation initiative is a twenty-five year walking are particularly significant for short urban transportation plan that was developed through trips. Arguments for encouraging these modes of two years of planning and public involvement. The travel are both functional and philosophical: TransLinks plan calls for bicycle and pedestrian provisions on state highway projects, inclusion in - Bicycling and walking are two of the most cost Metropolitan Planning Organization's (MPO) plans efficient modes of transportation with regard to and recommends the development of a State Bicycle operation, development and maintenance of facilities. Pedestrian Plan. While nearly eight million Americans enjoy bicycling and all are pedestrians, only 5.5% of - Bicycling and walking are two of the best forms all urban trips in the United States are by walking of physical exercise and therefore can effectively and 0.9% by bicycling. Safety, distance and traffic enhance the health of the citizens of Oshkosh. conditions are reasons often cited for the infrequent use of these travel modes. A 1990 Harris Poll suggests - Bike and pedestrian facilities developed for that twice as many people would walk or bicycle as transportation purposes can simultaneously enhance a primary means of transportation if better facilities recreation and tourism opportunities in Oshkosh. were available. In this fast-paced society, time and distance are perhaps the greatest impediments to - Bicycling and walking do not contribute to noise or non-motorized travel. Yet nearly 40% of trips made in air pollution and thus contribute to the health of the the U.S. are less than two miles. Trips of this length community. Off-road facilities developed for bicycling are very easily accomplished by average bicyclists, and and walking can protect and enhance our natural when compared to driving, require little additional resources. time. - Bicycling and walking promote social interaction of Walking and bicycling are underutilized modes of families and community members. transportation in the Oshkosh area. While mean travel time to work in Oshkosh was under 16.5 minutes in The premise of"multi-modalism" is simple: to create 2006-2008, very few chose to commute by bicycle a transportation system that offers not only choices (0.2%) or by walking (3.8%) (US Census 2006-2008). among travel modes for specific trips, but more The relatively small number of walking and bicycling importantly, presents these options so that they are trips can be attributed to impediments such as viable choices that meet the needs of individuals and traffic conditions, safety concerns, transportation the Oshkosh community as a whole. infrastructure and topography. 9 This plan is designed to increase levels of bicycle Bumpout (also known as curb extensions, chokers use by making recommendations to reduce these or neckdowns)—A traffic calming measure, primarily impediments, and to change the prevailing attitude used to extend the sidewalk, reducing the crossing that using an automobile is easier and more distance and allowing pedestrians to cross and convenient than bicycling or walking. approaching vehicles to see each other when vehicles parked in a parking lane would otherwise block 2.2 HOW WAS THE PLAN DEVELOPED? visibility. Development of this plan was administered by city planning staff with oversight from the Pedestrian Chevron-A double directional arrow used with a and Bicycle Stakeholder/Steering Group. It was bicycle symbol as pavement marking painted on the initially prepared by Schreiber/Anderson Associates, roadway to designate a sharrow and remind motorists a consulting firm out of Madison, Wisconsin and and cyclists that they are sharing the roadway. had multiple portions rewritten using their draft as a base. The stakeholder/steering group included Chicane- Curb extensions that alternate from one side representatives from various organizations and of the roadway to the other, forming S-shaped curves. reflected a broad cross-section of biking and walking interests provided guidance and met regularly over Complete Streets- Roadways designed and operated an 24 month time period to review the work to date. to enable safe, attractive, and comfortable access and There were also two public informational meetings travel for all users, including pedestrians, bicyclists, held during the planning process. motorists and public transport users of all ages and abilities. 2.3 DEFINITION OF TERMS The language used within this plan document is Crosswalk- Any portion of a roadway at an meant to be easy to read and understandable, intersection or elsewhere distinctly indicated as a however many of the terms used are not common pedestrian crossing by pavement marking lines on the place and are specific terms used primarily by surface, which might be supplemented by contrasting engineers, planners, bicycle enthusiasts and pavement texture, style, or color. pedestrian advocates. Although all the concepts within this plan are described and defined within Cul-de-sac-A dead end, closed, no through road/ the body of the text, below is an alphabetical list of court. Street with only one inlet/outlet. terms with definitions that may not be clearly or fully understood by the general public. Designated Bicycle Route—A system of bikeways officially designated and including appropriate Bicycle Facility-A general term denoting directional and informational signs. improvements and provisions that accommodate and encourage bicycling, including but not limited to Diverter- Barriers placed diagonally across an parking and storage facilities, and shared roadways intersection, blocking certain movements. not specifically defined for bicycle use. Easement- A right given to another person or entity Bike Box (Also known as an Advanced Stop Line)- to trespass upon or use land owned by somebody Road markings at signalized road interesections else. allowing bikes a "head start" when the traffic signal changes from red to green. Gutter Pan-A depression which runs alongside a city street, usually at the curb and diverts rain and street- Bike Lane -A portion of a roadway that has been cleaning water away from the street and into a storm designated by pavement markings and signs for drain. preferential or exclusive use by bicyclists. 10 Intermodel-The use of more than one mode Right-of-way-A portion of land that is granted, of transportation, including but not limited to through dedication, easement or other mechanism, automobile, mass transit, bicycling, walking. for public purposes including transportation purposes, such as for a trail, driveway, rail line or street. A Manual of Uniform Traffic Control Devices (MUTCD)- public right of way is not restricted by land ownership A document that defines the standards used by and grants access to all. road managers nationwide to install and maintain traffic control devices on all public streets, highways, Road Diet- A technique in transportation planning bikeways, and private roads open to public traffic. whereby a road is reduced in number of travel lanes The MUTCD is published by the Federal Highway and/or effective width in order to achieve systemic Administration (FHWA). improvements. A typical road diet technique is to reduce the number of lanes on a roadway cross- Median-A strip or central reservation is the reserved section. One of the most common applications of a area that separates opposing lanes of traffic on road diet is to improve safety or provide space for divided roadways, such as divided highways. other users in the context of two-way streets with 2 lanes in each direction. The road diet reduces Median Barrier- Raised islands located along the this to 1 travel lane in each direction. The freed-up centerline of a roadway and continuing through an space is then used to provide sidewalks, landscaping intersection to block cross traffic. strips, bicycle lanes, wider lane widths on remaining traffic lanes, two-way turn lane or center turn lane. Motor vehicle-A vehicle whose propulsion is Additional information is located in Appendix G. provided by an engine or motor. The internal combustion engine is the most common motor Roundabout-A circular intersection with yield control choice, although an electric motor, a combination of at entry, which allows a vehicle to travel counter- the two (hybrid electric vehicle), or other types are clockwise around a central island. also included. Rumblestrip- a series of intermittent, traverse areas Multi-use trail-A lane separated from facilities in of rough textured, slightly raised, or depressed road the right-of-way which are physically separated from surface typically located across travel lanes, on a motorized vehicle traffic by an open space or barrier. roadway shoulder or centerline/islands to alert road Multi-Use paths are typically used exclusively by users of unusual or special road conditions. pedestrians, bicyclists, and other nonmotorized users. Safe Routes To School (SRTS)-The SRTS Program Nonmotorized Vehicle-A vehicle whose propulsion empowers communities to make walking and is provided by means other than an engine or bicycling to school a safe and routine activity. The motor. These include but are not limited to bicycles, Program makes funding available for a wide variety skateboards, and animals. of programs and projects, from building safer street crossings to establishing programs that encourage Park-and-ride-A parking lot that allows drivers to children and their parents to walk and bicycle safely transfer to other transportation choices such as to school. walking, bicycling, mass transit, or carpooling. The vehicle is stored in the parking lot and retrieved when Shared Roadway-A roadway that is officially the owner returns. designated and marked as a bicycle route, but which is open to motor vehicle travel and upon which no Pedestrian-A person on foot, in a wheelchair, on bicycle lane is designated. skates or on a skateboard. Sharrow-An design painted on a roadway to mark a Pedestrian Facilities-A general term denoting bicycling route placed in the center of a travel lane improvements made to accommodate and encourage to indicate that a bicyclist may use the full lane. The walking. name "sharrow" is a contraction of"shared roadway". 11 Shoulder-The edge or border running on either side 2.4 PLANNING PROCESS of a roadway. It can be dirt, grass, gravel or pavement The planning process began with the formation of a typically intended for emergency stops. In most places vision, goals and objectives that were the basis for there is a solid white line separating the shoulder and evaluating and guiding the overall plan. Plan goals the road. were refined through the planning process to suit the local conditions as determined by an inventory and Sidepath- Segregated travel facilities located next to analysis of existing data. Inventories of conditions or alongside a roadway that are separated from the included historical data, field observations (conducted roadway and divided from motor vehicle traffic by a by traveling the planning area), research of local and physical barrier and/or increased greenspace. county planning documents and meetings with the public and municipal staff. Sidewalk-That portion of the street between the curb line or lateral line of the roadway, and the adjacent Planning and design criteria derived from Wisconsin property line or on easements of private property Bicycle Planning Guidelines, Wisconsin Bicycle Facility that is paved or otherwise improved and intended for Design Handbook, AASHTO Guidelines for Developing use by pedestrians. Bicycle Facilities, AASHTO Guidelines for the Planning, Design, and Operation Pedestrian Facilities, and The Speed Hump/Speed Bump- Rounded raised National Bicycling and Walking Study were used as pavement devices placed across roadways to slow general analysis criteria. Following the analysis of and/or discourage traffic. planning considerations, city staff, the Bicycle and Pedestrian Stakeholder/Steering Group and the public Speed table- Flat topped speed bumps often reviewed the interim plan. constructed with a brick or other textured material to slow traffic. The following sections describe the public process and summarize the results of these efforts. Traffic calming- a way to design streets to encourage people to drive more slowly and is self-enforcing. 2.5 BICYCLE AND PEDESTRIAN STAKEHOLDER/ STEERING GROUP MEETINGS Traffic Circles- Barriers placed in the middle of an The genesis for the development of this plan began intersection, directing all traffic in the same direction. with the formation of the City of Oshkosh Bicycle and Pedestrian Stakeholder/Steering group. Membership Trailhead-A point a trail begins often intended for included advocates, municipal representatives, hiking, biking, horseback riding, or off-road vehicles. recreation groups, and other members of the Oshkosh Modern trailheads often contain rest rooms, maps, community. The steering group was the direct sign posts and informational brochures about the trail oversight authority regarding creation of this plan and its features, as well as parking areas for vehicles and shaped its vision, content and recommendations. and trailers. They met approximately 18 times over a 24 month period and created the draft plan from beginning to Transit (Public)-A shared passenger transportation finalization. It was recommended that a form of this service which is available for use by the general body become formalized as an official City of Oshkosh public, as distinct from modes such as Taxicab, car commission/board and remain intact after adoption pooling or hired busses which are not shared without of this plan to act as a clearinghouse and resource private arrangement. for the City of Oshkosh to help grow bicycle and pedestrian mobility within the Oshkosh metro area. Wisconsin Department of Transportation (WisDOT)- State Agency responsible for planning, building and 2.6 SURVEY maintaining Wisconsin's network of state highways The public process used for the preparation of this and Interstate highway system. The department plan included multiple opportunities to gather shares the costs of building and operating county and stakeholder feedback. One opportunity was the local transportation systems. creation of an online survey posted on the City 12 Planning Department's website. Notification of the Additional information gathering took place survey was provided via word of mouth, the Tour- through a Pedestrian and Bicycle Plan informational de-Titan ride, the University of Wisconsin-Oshkosh kiosk/display manned at the Tour De Titan, UWO website and various media outlets. Results from the Transportation Day, multiple running-walking events, survey are included in Appendix A. special interest group presentations to groups such as the League of Women Voters, Winnebago County 2.7 PUBLIC MEETINGS Healthy Recreational Opportunity Committee and the There were two public information meetings State of the City. held during the planning process positioned to "bookend" the plan creation prior to review and Government Body Workshop recommendation by the interested/affected city A workshop/presentation to City of Oshkosh boards/commissions and the City Council. The first Boards and Commissions including a joint board/ public information meeting was an introductory commission presentation and discussion sponsored Kick-Off meeting to outline the process and solicit by the Traffic Review Advisory Board and including input; the second unveiled of the draft plan to members from the Sustainability Advisory Board, the public as an open house. Following the public Advisory Parks Board, the Plan Commission and information open house, the draft plan was brought the Common Council on July 12, 2011 at City Hall, before multiple city boards and commissions 215 Church Avenue, Oshkosh WI. It was attended for formal review and recommendations. Once by a majority of individuals serving on the specific reviewed by individual commissions and boards, a boards/commissions as well as six of the seven workshop before the Common Council took place for Common Council members. The primary purpose presentation of the plan and in-depth discussion on of the workshop was to introduce the key concepts its elements. Formal public hearing and adoption and recommendations included in the draft plan of the draft plan by the Common Council took place well before it went to a public open house or the following the Council workshop. The schedule of individual boards/commissions for formal review and public meetings and workshops as well as description recommendation. This meeting can be viewed online of each are as follows: at: http://www.oshkoshcommunitymedia.org/traffic_ review_stream.htm Public Informational Meeting: Kick-Off This meeting was held August 30, 2009 at City Hall, Public Informational Meeting: Open House 215 Church Avenue, Oshkosh WI. It was attended A second public meeting was held on August 11, by approximately 35-40 people. The purpose of this 2011 at the Oshkosh Seniors Center, 200 North "open house" was to display maps (bicycle audit, etc.), Campbell Road, Oshkosh, WI. It was attended by draft goals and objectives, and to allow participants to 80-90 people, many of whom have followed the discuss their preferences about biking and walking in progress of the plans creation. The open house the Oshkosh area. The meeting provided an informal included a presentation of the plan to the general opportunity for community members to discuss issues public, discussion and opportunity for community and aspirations with members of the Stakeholder/ comment. Presentation materials included multiple Steering group and the consultant. Some of the sets of display boards detailing the Vision, Goals and discussions included: Objectives, and Best Facility Practices for Pedestrians and Bicycles as well as maps depicting the proposed - Highway 41 as a barrier to safe access around and Bicycle Route System, the Five-Year Priority Facility out of the city. Improvements and Pedestrian Hazard Areas. - Significant origin and destinations. Questions were fielded by city staff and Stakeholder/ - Preferred routes (east/west and north/south Steering group members and comments and connections). suggestions were provided by attendees. - Safety of existing routes as major areas of concern. - Connections to the WIOUWASH Trail. 13 Sustainability Advisory Board Common Council Workshop A formal review of the plan was held by the Oshkosh A workshop/presentation of the plan was held by the Sustainability Advisory Board on August 1, 2011 Oshkosh Common Council on August 23, 2011 prior during their regularly scheduled meeting at City Hall, to their regularly scheduled meeting at City Hall, 215 215 Church Avenue, Oshkosh WI. Questions were Church Avenue, Oshkosh WI. All recommendations, addressed and comments/suggestions provided comments and suggestions received by the general resulting in recommendation for approval by the public and the individual boards/commissions were Sustainability Advisory Board to the Common provided including the staff response to them. They Council. This meeting can be viewed online at: http:// are included in Appendix H. The workshop can be www.oshkoshcommunitymedia.org/sustainability_ viewed online at: advisory_board_stream.htm http://www.oshkoshcommunitymedia.org/council_ stream.htm Advisory Parks Board A formal review of the plan was held by the Oshkosh Common Council Advisory Parks Board on August 8, 2011 during their Public Hearing and final Common Council review was regularly scheduled meeting at City Hall, 21S Church held at the City of Oshkosh Common Council meeting Avenue, Oshkosh WI. Questions were addressed on September 27, 2011 at City Hall, 215 Church and comments/suggestions provided resulting in a Avenue, Oshkosh, WI. The Common Council approved recommendation for approval being made by the the draft plan amending it to include the comments Advisory Parks Board to the Common Council. and suggestions received as a new appendix item. This meeting can be viewed online at: Traffic Review Advisory Board http://www.oshkoshcommunitymedia.org/council_ A formal review of the plan was held by the Oshkosh stream.htm Traffic Review Advisory Board on August 9, 2011 during their regularly scheduled meeting at City Hall, 215 Church Avenue, Oshkosh WI. Questions were addressed and comments/suggestions provided with the result being a recommendation for approval being made by the Traffic Review Advisory Board to the Common Council. This meeting can be viewed online at: http://www.oshkoshcommunitymedia.org/traffic_ review stream.htm Plan Commission A formal review of the plan was held by the Oshkosh Plan Commission on August 16, 2011 during their regularly scheduled meeting at City Hall, 215 Church Avenue, Oshkosh WI. Questions were addressed and comments/suggestions provided with the result being a recommendation for approval being made by the Plan Commission to the Common Council. This meeting can be viewed online at: http://www.oshkoshcommunitymedia.org/planning_ stream.htm 14 15 � IIIUuoo ullo ullo moi moi IIIIII IIIIII IIIIII i 3 VISION & GOALS 3.1 VISION STATEMENT Develop and maintain a pedestrian and bicycle friendly transportation system that is safe, equitable, increases physical activity and recreational options, and is an economic asset to the community. 3.2 Six E's Education: Increase public and political awareness of the need for and benefits of bicycle and pedestrian facilities and a well-interconnected multimodal transportation network. Encouragement: Encourage more residents to walk and/or bike as a means to reduce dependence on the automobile, conserve energy, and increase physical activity Enforcement: Improve safety, reduce conflicts, and built mutual awareness and respect between motorists, bicyclists, and pedestrians by improving enforcement of all multimodal transportation laws. Engineering: Improve the connection between bicycle, pedestrian, and transit networks within the City of Oshkosh by identifying gaps, barriers, and needed multimodal facilities and connections. Evaluation: Establish criteria to evaluate the education, encouragement, enforcement, and engineering components of existing and future bicycle and pedestrian planning efforts, program, and facilities. Equity: Work to support safe, active, and healthy opportunities for all members of the community. Incorporate equity concerns throughout all the other goals and activities to identify barriers and ensure equitable results. 16 3.3 GOALS AND OBJECTIVES Goals are statements that describe a desired condition or outcome. Objectives state the rationale for achieving a goal. Goals and Objectives 3.3.1 Create a permanent Bicycle and Pedestrian Committee within the City of Oshkosh governmental structure. a. Oversee implementation of the Bicycle and Pedestrian Plan. b. Encourage widespread, safe, and responsible use of walking and bicycling as forms of transportation. c. Have an ongoing, working relationship with City Departments and other committees. d. Act as a liaison for Oshkosh in regard to pedestrian and bicycle issues with outside agencies and government bodies. 3.3.2 Develop a well-connected bicycle route system that links a variety of facilities together into a cohesive transportation system (both on and off-road). a. Promote safe bicycle and pedestrian travel modes by linking pedestrian and bicycle systems throughout Oshkosh. b. Capitalize on the availability of easements and access corridors to enhance the existing linear trail network throughout and beyond the city limits. c.lmprove the overall quality of life for both residents of and visitors to the City of Oshkosh by providing a variety of opportunities for safe walking and biking. d.Ensure adequate bicycle parking and intermodal coordination and connectivity. 3.3.3 Increase the utilization and availability of funding for bicycle and pedestrian improvements. a. Target resources for bicycle and pedestrian improvements to areas of greatest transportation need. b. Use this plan as a project guide when applying for all funding sources. c. Promote public-private partnerships to compete for funding sources for which Oshkosh is not eligible. 3.3.4 Design roads to be compatible with surrounding uses and be pedestrian, bicycle and transit friendly. a. Integrate the trail system into a bicycle and pedestrian transportation network which supports linkages to mass transit facilities. b. Identify priority origins and destinations and increase access to these locations by bicycle and pedestrian travel modes. c. Minimize the number and severity of vehicle-bicycle and vehicle-pedestrian conflicts. d.Ensure sufficient road capacity for areas with high amounts of pedestrian and bicycle traffic. 17 3.3.5 Provide adequate education, encouragement, evaluation, and enforcement programs. a. Increase educational opportunities to educate pedestrians, bicyclists, and motorists about rights and responsibilities on roadways and shared-use facilities. b. Promote incentives for walking or biking. c. Increase the usability of transportation facilities by placing additional emphasis on enforcing speed limits, rights of way, etc. along pedestrian and bicycle corridors. d. Promote and provide dedicated facilities for public and private developments such as connecting walkways, transit stops and bicycle parking. 3.3.6 Enhance intergovernmental cooperation and coordination for improving multimodal transportation. a. Engage elected officials and residents in development and utilization of bicycle and pedestrian facilities. b. Work cooperatively in developing grant-writing workshops, maintenance seminars, and training sessions. c. Guide outside agencies such as Winnebago County, the State of Wisconsin, metropolitan planning agencies, etc. to utilize and adopt this plan's elements in their projects. 3.3.7 Develop shared-use transportation standards to include in the development review process for developments planning. a. Ensure "complete streets" are constructed or reconstructed to prevent costly future retrofitting. b. Promote connectivity to destinations and promote alternative methods of transportation within neighborhoods. c. Interconnect all areas in the community, especially neighborhoods to the transportation network throughout Oshkosh. 18 19 1 i w 4 CURRENT CONDITIONS and SAFETY The inventory and analysis of factors affecting bicycle and pedestrian transportation in Oshkosh include an assessment access, population patterns, transportation patterns, existing facilities, destination identification, and a review of state and local ordinances and plans. 4.1 ASSESSMENT OF BICYCLE AND PEDESTRIAN FRIENDLINESS 4.1.1 BRIDGE ACCESS The Oshkosh area consists primarily of a grid pattern street system that is traversed by the area's waterways and highways. As a result, bridges are a major consideration for bicycle and pedestrian travel. There are 5 bridges that cross the Fox River and roughly divide the City between north and south. All of the following bridges are located within the planning area. The major bridges along arterial and collector streets that have been assessed for active transportation include (from east to west): 1. USH 45 (Main Street Bridge): provides a raised, separated sidewalk for pedestrians. There are four travel lanes for motorized traffic and are wide- 20 enough to accommodate bicycles. However, the trip. However, if linkages are available from this decking surfaces of all of the travel lanes on the segment to other segments, facilities, or destinations, bridges can be treacherous for bicyclists, and most the whole system is improved. For example, many riders prefer to use the sidewalk. bicycle commuters will use a series of on-road 2. Jackson/Oregon Street Bridge: four traffic lanes are facilities (e.g. bike lanes), off-road facilities (multi-use wide enough to accommodate bicycles. trails), and other connections (local paths to buildings 3. Wisconsin Street Bridge: good pedestrian facilities, or structures) during a typical trip. Ensuring these four travel lanes for motorized traffic with a bike facilities are "connected" in some way increases lane on the deck with special bike friendly plates the likelihood they will be considered as a regular on the lift spans. The newly constructed bridge has transportation option. wide sidewalks to accommodate both bicyclists and pedestrians but the transition areas from the bridge Within Oshkosh's urbanized area there are a few sidewalk to the adjacent streets are lacking. trails, such as the developing Riverfront Trail and 4. Congress Avenue/Oshkosh Avenue/STH 21 Bridge: the WIOUWASH State Recreation Trail, that provide good pedestrian facilities, travel lanes are wide important linkages between commercial centers, enough to accommodate bicycles. recreation areas, and environmental resources. 5. USH 41 overpasses and underpasses: Recently Enhancing the usability of existing trails by increasing reconstructed and current plans for reconstruction of the number of connections to priority destinations USH 41 call for bicycle and pedestrian improvements is vital to creating a bicycle and pedestrian friendly on all overpasses and underpasses to varying degrees transportation system. from wider outside lanes to bike entrance/exit ramps for sidewalk use. See Appendix C. Intergovernmental linkages are just as important. American Community Survey 5-year data from 2010- 4.1.2 STREET AND HIGHWAY SYSTEM ACCESS 2014 indicates 82.8 percent of workers residing in The Oshkosh urbanized area is connected to the the City of Oshkosh work within Winnebago County. surrounding suburban and rural areas by a system of Connections between places of residence to place of State and County highways. 1-41 provides a north- employment are integral to increasing mode share. south route through the area. Travel east to west is Often, bicycle commuters who reside in suburban primarily accommodated through any number of or rural areas use county highways to access the county and state highways. Bicycle and pedestrian urban transportation network. Providing safe and travel is prohibited on 1-41; however, the Tribal adequate facilities along these "urban escape routes" Heritage Trail runs adjacent to 1-41 over Lake Butte creates opportunities for commuters who want to des Morts and allows for bicycle and pedestrian bike to work the opportunity to do so. Similarly, travel. The County Highway (CTH) system and state connections to area trails, such as the WIOUWASH highway system (STH) is a primary linkage between State Recreation Trail, can increase comfort levels for extraterritorial areas and the Oshkosh urbanized area bicyclists of all abilities. and provides limited bike facilities. Transportation versus Recreation Function 4.1.3113ICYCLE AND PEDESTRIAN SYSTEM ACCESS A facility serves a transportation purpose when it This section includes a discussion on the importance is used to get people from Point A to Point B, and of connectivity of transportation facilities, identifying could likely substitute for motor vehicle trips. The origin/destination points, and understanding the Stakeholder/Steering Group addresses this issue by function of bicycles and pedestrian facilities for both linking bike routes to Oshkosh area destinations (such transportation and recreation. as commercial, religious, educational, recreational, places of employment and community buildings). Connectivity Recreation trips also may occur on the same facility. The importance of connectivity cannot be overstated. If a segment of road, trail, or sidewalk does not link a A facility is a recreation facility when the primary user's origin with their intended/desired destination it purpose is to use the facility itself. For example, may not be a viable transportation option for that 21 a backcountry hiking trail is a recreational facility At the regional level, other communities and because its intent is not transportation. All of the major recreational destinations are the prime trip trails, routes, and facilities in the Oshkosh area generators. Within the urban and suburban areas, are transportation facilities that may also serve a these destinations also include local shopping, recreation or tourism function. employment, and government centers. Origins and Destinations 4.1.4 TRANSIT INTERFACE Generally, motorized and non-motorized The City of Oshkosh Transportation Department transportation users share similar origins and provides public transportation services, GO Transit, destinations - but use different modes to accomplish in the Oshkosh area. Owned by the City of Oshkosh, their goal of arriving at a destination safely and limited service is also provided to the City of Neenah. efficiently. Arterial and collector roads that effectively Most transit users access the bus system on foot and deliver many motorists also provide the most rely on pedestrian facilities. Inadequate pedestrian direct and continuous routes for many bicyclists. facilities not only make it more difficult to use the bus, These systems, however, are not always designed they can also pose safety hazards to riders. Increasing to accommodate the special needs of the average the number of shelters or street furniture for bicyclist. When roadway conditions are unsuitable pedestrians waiting for buses may improve comfort for bicyclists, infrastructure design treatments may levels for transit users. Transit users who access the be used to improve the roadway or an alternative bus system via bike must rely on the availability of an corridor may be selected. To reduce the potential adequate location to lock their bike once arriving at of bicycle—vehicle conflicts where possible, the the bus stop, or must bring their bicycle with them. Stakeholder/Steering Group chose to use alternate All of the GO Transit buses are equipped with front- street networks for the bicycle facility routes to end bicycle racks so users can transport their bicycles improve overall safety and comfort of riders. to their destination. Potential use patterns are not always reflected by the Existing Facilities existing transportation system, but can be estimated The City of Oshkosh, Winnebago County, and the by locating trip generators (origins and destinations) State of Wisconsin have been installing bicycle and and projecting areas of population growth and future pedestrian infrastructure throughout the City of land use patterns. Oshkosh. These facilities include sharrows, bike lanes, sidewalks, paths and trails. As of this Plan's update Generally speaking, people are less willing to (list date of adoption here), the City of Oshkosh has commute to work by bicycling and walking if the x miles of bicycle and pedestrian facilities. Current travel time is more than 20 minutes. Within the City facilities are found in Map x. of Oshkosh x% of workers travel 20 minutes or less to work. Directness of the route, physical condition of the bicyclist, number of stops, availability and proximity of bicycle parking facilities all affect how far one is able to bike in 20 minutes. The average adult bicyclist commonly travels 3 to 4 miles in 20 minutes. From a bicyclist's standpoint, this 3-4 mile trip defines the service area of each destination and helps to define commuting use patterns. Recreational riders will ride much farther in a day- trips of 30 to 40 miles are not unusual and tours of 80 to 100 miles are offered regularly during the biking season in Wisconsin. Fitness riders and bike racers will travel 30 to 50 miles in a typical training ride. 22 4.2 COMMUNITY AND USER CHARACTERISTICS This section includes Census and American Communities Survey (ACS) data. The 2010 Census differs from previous censuses in two ways: 1. The 2010 Census only included the short-form, whereas previous Censuses collected short-form data from all households and long-form data from a sample of households (about one in every six for the 2000 Census); 2. The long-form was replaced with the American Community Survey, which is a nationwide, continuous survey every year rather than just once a decade. While ACS data can be compared to 2000 Census data, it should be noted that there are differences in question wording and the ways data is tabulated. 4.2.1 SOCIOECONOMIC DATA (2000, 2010 Census, and 2015 5-Year American Communities Survey Data) This analysis is based on the information gathered from the 2010 Census and American Communities Survey. Population In 2010, approximately 66,083 people lived within the City of Oshkosh. The population has grown by 5% since the 2000 Census and continues to grow, with an estimated population growth of 11.7%from 2010-2040. Table x: Population Estimates, 2010-2014 Percent Change 2010- Municipality 2010 2015 2020 2025 2030 2035 2040 2040 City of Oshkosh 66,083 66,900 69,250 71,250 72,900 73,650 73,800 11.7% Winnebago County 1 166,994 1 169,925 1 177,050 1 183,230 1 188,680 1 191,710 1 193,130 1 15.7% Wisconsin 5,686,986 5,783,015 6,005,080 6,203,850 6,375,910 6,476,270 6,491,635 14.1% Source: WDOA, Wisconsin Demographic Services Center, Vintage 2013 Population Projections Table x: Percent of Population by Age Cohort, 2000 and 2010 Under 5 5 to 19 20 to 24 25 to 44 45 to 64 65 & older Median 2000 Percent Percent Percent Percent Percent Percent Total Age City of Oshkosh 5.4% 20.7% 12.7% 29.7% 18.4% 13.1% 62,916 32.4 Winnebago County 6.9% 23.5% 6.1% 31.9% 20.7% 10.9% 156,763 35.4 Wisconsin 6.4% 22.2% 6.7% 29.5% 22.2% 13.1% 5,363,675 36.0 Under 5 5 to 19 20 to 24 25 to 44 45 to 64 65 & older Median 2010 Percent Percent Percent Percent Percent Percent Total Age City of Oshkosh 5.5% 18.4% 13.4% 26.7% 23.0% 12.9% 25,501 33.5 Winnebago County 5.9% 19.1% 8.5% 26.0% 27.1% 13.4% 166,994 37.9 Wisconsin 6.3% 20.1% 6.8% 25.5% 27.7% 13.7% 5,686,986 38.5 Source:U.S. Census 20-10, DP-1 Population by race provides information regarding the social and cultural characteristics of an area. It also provides information regarding population dynamics. Access to education and economic opportunities differ by race. Differences also exist in age structure, language barriers and risks for various diseases and health conditions. Since new immigrants are more likely to settle in areas with existing populations from their country of origin, race and ethnicity, existing populations may also influence migration patterns. National population trends indicate that persons of color (includes African Americans, Native Americans, Alaskan Natives, Pacific Islanders, Asians and persons declaring two or more races) and persons of Hispanic Origin are growing faster than non- Hispanic whites. As the population of the City, Winnebago County and Wisconsin continues to grow, it is likely that the minority proportion of the population (persons of color and whites of Hispanic Origin) will 23 also continue to grow. If this occurs, communities may need to compensate for the changing demographic composition. Communities may also find it beneficial to promote opportunities for positive interaction between cultures. An increase in understanding of differences and similarities in expectations and cultural values may help reduce friction between groups. Poverty Status The state poverty level is determined by the U.S. Census Bureau based on current cost of living estimates adjusted for household size. In 2000, the poverty threshold for a family of four with two children was a household income of$17,463. By 2010, the poverty threshold for a family of four with two children had increased to $22,113 . In 2010-2014, 18.9% (+/-1.8%) of the City's population was living below the poverty line according to American Community Survey 5-Year Estimates (Table 2-12). This is slightly less than Winnebago County (12.5%+/-0.9%) and the State of Wisconsin (13.3%+/-0.2%). Between 1999 and 2010-2014, the percentage of people living below the poverty line increased for the City, Winnebago County and the State of Wisconsin. In 1999, 10.2% of the City's residents were living below the poverty line, while 6.7% of Winnebago County residents were, and 8.7% of residents of the State of Wisconsin were living below the poverty line. Table x: Poverty Status, Total Persons - 1999 and 2010-2014 ACS 5-Year Estimates Total Persons Total Persons Below Poverty Level 1999 2010-2014 5-Yr Est. 1999 2010-2014 5-Yr Est. No. Estimate MOE +/- No. Percent Estimate MOE +/- Percent MOE +/- City of Oshkosh 62,916 58,660 909 5,672 10.2% 11,090 1,057 18.9% 1.8 Winnebago County 1 148,696 159,429 1,1091 9,940 6.7% 19,961 1,414 12.5% 0.9 Wisconsin 1 5,211,603 15,571,0831 1,287 1451,538 8.7% 1738,557 10,521 13.3% 0.2 Source:U.S.Census 2000 SF3, 2010-2014 American Community Survey 5-YrEstimate, S1701 Approximately 10% (+/-1.9%) of families lived below the poverty level in the City, according to 2010-2014 American Community Survey 5-Year Estimates (Table 2-13). This was more than the share of families in Winnebago County (7.1%+/-0.8%) and more than the share of families in the state (8.9%, +/-0.2). Between 1999 and 2010-2014, the percentage of families living below the poverty level increased in the City, County and the State. In 1999, 5.2% of families lived below the poverty level in the City compared to 3.8% of the families living in Winnebago County and S.6% of the families living in Wisconsin. Table x: Poverty Status, Total Families - 1999 and 2010-2014 ACS 5-Year Estimates Total Families Total Families Below Poverty Level 1999 2010-2014 5-Yr Est. 1999 2010-2014 5-Yr No. Estimate MOE +/- No. Percent Percent MOE +/- City of Oshkosh 13,653 13,426 488 718 5.2% 10.1% 1.9% Winnebago County 39,788 41,260 767 1,517 3.8% 7.1% 0.8 Wisconsin 1,395,037 11,469135914843 78,188 1 5.6% 8.9% 1 0.2 Source: U.S. Census 2000 SF3, 2010-2014 American Community Survey 5-Yr Estimate, S1702 Racial Distribution The population in the City is less diverse than that of the state and more diverse than the county. In 2010, whites comprised 90.5% of the City population compared to 92.5% in the county and 86.2% of the state's population. 24 TableX: Population by Race and Hispanic Origin, 2000 and 2010 City of Oshkosh Winnebago County Wisconsin 2000 2010 2000 2010 2000 2010 No. Percent No. Percent No. Percent No. Percent No. Percent No. Percent White 58,886 92.7% 59,812 90.5% 148,900 95.0% 154,445 92.5% 4,773,553 89.0% 4,902,067 86.2% African American 1376 2.2% 2051 3.1% 1,729 1.1% 2,975 1.8% 300,355 5.6% 359,148 6.3 American Indian- Alaskan Native 331 0.5% 510 0.8% 781 0.5% 1,036 0.6% 49,661 0.9% 54,526 1.0% Asian or Pacific Islander 1940 3.1% 2143 3.2% 2,480 1.6% 3,880 2.3% 84,654 1.6% 131,061 2.3% Other Race 346 0.5% 475 0.7% 1,192 0.8% 2,188 1.3% 84,281 1.6% 135,867 2.4 Two or More Races 621 1.0% 1092 1.7% 1,681 1.1% 2,470 1.5% 71,171 1.3% 104,317 1.8% Total Persons 63,500 100% 66,083 100% 156,763 100% 166,994 100% 5,363,675 100% 5,686,986 100% Hispanic or Latino 1074 1.7% 1770 2.7% 3,065 2.0% 5,784 3.5% 192,921 3.6% 1 336,056 5.9% Source:U.S.Census 2000,2010,DP01 Household Composition In 2000, (56.7%) and 2010 (52.9%),just over half of the households in the City were family households. During both years, the City had a lower percentage of family households compared to the County (64.7%, 61.2%). The state had a slightly larger share of family households compared to the City in 2000 (66.5%), and in 2010 (64.4%). Individuals living alone, age 65 years old and older, made up about 12 percent of the households in the City in 2000 (11.7%) and in 2010 (11.4%). This was a larger share of the total households compared to the county (9.9%, 10.3%) and the state (9.9%, 10.2%) during both time periods. By 2010, the portion of households with individuals 65 years old and older living alone stayed about the same in the city and increased in the county and state. Households are composed of family households (married couple and male or female, no spouse present) and nonfamily households. In 2000, the percentage of married couple families was lower in the City (44.3%) than in the county (53.0%) and the state (53.2%). Between 2000 and 2010, the percentage of married couples decreased in all jurisdictions, as the percentage of single parent families increased. During this time period, the largest decrease was experienced by the City (5.6%), in comparison the percentage of married couples decreased by 5.2% in the county and 3.6% in the state. Married couple families made up 38.7% of all households in the City in 2010, compared to 47.8% in Winnebago County and 49.6% in the state. Household Forecasts Total population figures include not only persons in households, but also persons in group quarters *. As the population ages during the projection period, it is likely that the persons in group quarters will increase over time. This increase will come from not only the elderly component of the population, but also from the disabled component of the population as aging parents will no longer be able to care for disabled offspring. It is important to remember that the actual growth rate and the amount of future growth a community will experience will be determined by local policies which can affect the rate of growth within the context of county, state, and national population growth trends. Migration is expected to play a part in the City and Winnebago County's growth patterns in the coming decades. Therefore growth rates and trends outside the county will influence the pool of potential residents the county can attract. Based on anticipated growth trends, the City's population is expected to continue to increase through 2040 (Table x). During this same time period, the number of households is expected to increase by about 16.0% from 26,138 in 2010 to 30,309 in 2040 (Table 2-9). The increase in the number of households is expected to result from a decrease in household size and an increase in population. Between 2010 and 2040 it is anticipated that the household size will decrease from 2.24 persons per household to 2.15. Group Quarters,as defined by the 2010 U.S.Census,"is a place where people live or stay,in a group living arrangement,that is owned or managed by an entity or organization providing housing and/or services for the residents.This is not a typical household-type living arrangement.These services may include custodial or medical care as well as other types of assistance,and residency is commonly restricted to those receiving these services.People living in group quarters are usually not related to each other. Group quarters include such places as college residence halls,residential treatment centers,skilled nursing facilities,group homes,military barracks,correctional facilities,and workers'dormitories" 25 Table x: Household Projections, 2010-2040 City of Oshkosh Winnebago County Wisconsin Year No. HH Person/HH No. HH Person/HH No. HH Person/HH 2010 26,138 2.24 67,875 2.34 2,279,768 2.43 2015 26,796 2.22 69,784 2.32 2,371,815 2.38 2020 27,965 2.21 73,211 2.30 2,491,982 2.35 2025 28,936 2.19 76,221 2.29 2,600,538 2.32 2030 29,742 2.18 78,920 2.28 2,697,884 2.30 2035 30,190 2.16 80,713 2.26 2,764,498 2.28 2040 30,309 2.15 815611 2.25 2,790,322 2.26 Percent Change 2010 to 2015 2.5% -0.9% 2.8% -0.9% 4.0% -2.2% 2015 to 2020 4.4% -0.5% 4.9% -0.9% 5.1% -1.2% 2020 to 2025 3.5% -0.9% 4.1% -0.4% 4.4% -1.0% 2025 to 2030 2.8% -0.5% 3.5% -0.4% 3.7% -1.0% 2030 to 2035 1.5% -0.9% 2.3% -0.9% 2.5% -1.0% 2035 to 2040 0.4% -0.5% 1.1% -0.4% 0.9% -0.8% Source: WDOA, Wisconsin Demographic Services Center, 1/1/2015 Final Estimates and Vintage 2013 Population Projections 4.2.2 TRAVEL TO WORK Means of Travel Table x reflects how workers aged 16 years or older in the City of Oshkosh travel to work on a daily basis. It should be noted that this question asks the respondent how s/he usually got to work the last week. Table x: Means of Travel to Work for Workers 16 Years or Older (2010-2014 ACS 5-Year Estimate) City oaf Oshkosh Means of Travel to, Work Number r Percent Total Population and over 42,274 Drove e ANO e 36,484 86.3% Carpooled 31252 7.7% Taxicab, motorcycle, bi cll r offer beanie 742 18% Walked 10148 2.7% Public Transportation (excluding taxicab) 648 13 Source: Table B08534, 2010-2014 Am ri anommui nity Survey 5-Year Estimates 26 4.2.3 LAND USE CONNECTION Transportation systems and land use patterns have a well-documented reciprocal relationship. The importance between land use and transportation should not be underestimated. Land use patterns and development decisions are often seen as controlled solely by market forces, leaving public agencies to respond to the transportation demand created in their wake. However, public land use policies directly affect private land use decisions such as zoning regulations and minimum parking requirements. Therefore, land use policies need to be considered in relation to the impact of transportation just as transportation policies need to be considered in relation to land use. As communities have grown, the demands for transportation system improvements have also grown. However, these transportation improvements have also provided more convenient access to undeveloped land farther out from center city, thus spurring further 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. Notable land use patterns or issues for the City of Oshkosh include: • Water divides the urbanized area. • The majority of city arterials are four lane with no on-street parking and if sidewalks are present they are immediately adjacent. • Development as it exists today directly corresponds to the freeway system. 27 28 29 West Irving Avenue - Jackson to Division AM a Now AM -AM- 5 BEST FACILITY PRACTICES 5.1 ALTERNATIVES FOR IMPROVED BICYCLE AND PEDESTRIAN FACILITIES It is generally understood that bicycle and pedestrian facilities enhance the usability of an entire transportation network. Unfortunately, dor decades transportation engineering trends focused on designing roadways and works for motor vehicles and facilities for bicycles and pedestrians rlans has been minimal or nonexistent. Bicyclists and pedestrians must be included as a matter of course in the planning and design of roadway plans and facility selection of transportation networks. This includes reconstruction, repaving, and retrofits of existing streets. By comprehensively nd motor vehicle facilities the transportationatibicycle, � zystem work totality for Some elements of roadway design pertain specifically to bicycles, such a: lanesbike venue omn pertaexclusexclusivelyepe,eae: �seexclusivelyco neae:e,ian:, uchas sidewalks and car ,walks. Vr, the roll design and operational elements of the roadway are just as important. Designers, planners and engineers have a diverse array of design elements and ever-developing technologies at their disposal. This chapter is a source of information on design, engineering tools and facility alternatives that promote "walkability" and "bikeability". To enable safe and efficient bicycle and pedestrian movement throughout the City of Oshkosh; on-street, off-street and other infrastructure improvements are addressed in this chapter. The transportation network and physical improvement recommendations are broken into bicycle facilities and pedestrian facilities. They include signed and striped roadways, signed and/or shared roadways and multi-use trails as well as additional facility considerations associated with each. Choosing the best facility alternatives for any of the network recommendations within the plan must be done on a case-by-case basis, factoring in such things as location, right-of-way width, number of lanes, traffic speed, presence of on-street parking, traffic volumes, pedestrian volumes, pedestrians with disabilities, snow removal, etc. It is important to understand that the facilities chosen for any given segment of the overall network may not be static and open to debate and discussion because what may be feasible and desirable in one instance may not be in all instances. The following recommendations are presented as a means to address the goals and objectives identified by the Stakeholder/Steering Group, the public, Oshkosh city staff, and the consultant in previous chapters. The recommendations were developed using an inventory and analysis of existing facilities, ordinances, and plans, and rely on suggestions from the local system users and the Oshkosh Bike and Pedestrian Stakeholder/Steering Group. This chapter recommends specific bicycle and pedestrian orientated programs/policies, facility improvement recommendations to create an interconnected/comprehensive bicycle route system, costs associated with facilities and a process for plan amendment. 31 o i "uuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuuB ,,;,,iio�!//�' "'�� / VVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVVV " II �\ illilluuuuuuuuuuuuuuuuuuuuuuuuuuuuV�VVVVVVVVVVVVVV i a " r r q j 6 RECOMMENDATIONS Drawing from the goals outlined in Chapter 3, this chapter outlines recommendations that will assist in achieving these goals. Education 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. 1. Hold, participate in, and support annual events that promote walking and bicycling including the provision of bicycle-training, such as "Bike rodeos", Safety Fairs, and helmet campaigns. • BikeOsh is an event that strives to educate riders on the existing bike routes and introduce them to local businesses and amenities. • Pedestrian Safety Day is held during pedestrian safety month can help educate drivers and pedestrians on safety. • Bike Rodeos are used to educate parents and children about the safety aspects of riding a bicycle on streets and roads. • Safety fair through a partnership with the Winnebago County Health Department, ReThink, and/or the Transportation Department. 32 2. Publish maps of current walking and bicycling conditions with routes. • Maps can be made available at locations such as convenience stores, motels/hotels, visitor information centers, and public libraries, social media, City of Oshkosh website. 3. Continue to collaborate and partner with Fox Valley Technical College, Private schools, neighborhood associations, Oshkosh Area School District and UW Oshkosh to educate students on bicycling and walking. 4. Partner with businesses on bicycling and walking programs (i.e. Bicycle Benefits program) to educate the community. 7. Educate motorists and bicyclists through marketing and advertising campaigns like a "Share the Road" Campaign and use promotional materials to promote bicycle and pedestrian safety such as a "Myths and Facts" pamphlet, etc. 8. Assist in the implementation of the Wayfinding Guide through East Central Wisconsin Regional Planning Commission. 9. Establish a partnership (local agencies, Oshkosh Chamber of Commerce, Oshkosh Convention and Visitors Bureau, DNR, DOT, and others) to develop educational materials promoting bicycle and pedestrian safety as well as detailing walking and bicycling routes for fitness, recreation, and transportation. 10. Reinforce the idea of bicycling as a form a transportation at all outreach events and opportunities. Encouragement Encouragement activities are valuable because they enable or promote biking and walking through incentives or provisions. 1. Promote public and private bicycle rides, events, and bicycle advocacy group campaigns such as bike to work week, bike swaps, club rides, fundraising events, and competitive sporting events. 2. Encourage and assist employers to provide incentives for employees and customers to bicycle and walk to work, such as reducing the amount of vehicle parking required if bicycle and pedestrian facilities are included or the Bike Benefits Program. 3. Support the Safe Routes to School program and Safe Routes to Parks program. 5. Increase use of multimodal transportation options by employing the use of items such as bicycle racks on buses, at park and rides, at public parking lots, and at trailheads. Enforcement Consistent enforcement of traffic laws is vitally important for creating a safe pedestrian and bicycling environment. Enforcement programs target unsafe driving behaviors, such as speeding and a police presence serves to reinforce safe bicycling and walking behaviors. The presence of more "eyes on the street" helps make everyone feel safer, and drivers and cyclists alike are on their best behavior. 1. Continue and enhance police bicycle patrols throughout the city, especially on designated bicycle routes. 2. Collaborate with the Safe Routes to School and Safe Routes to Parks program to educate and train law enforcement personnel in the enforcement of laws concerning bicyclists' and pedestrians' rights and responsibilities. Train crossing guards to report motorists who violate crosswalk regulations. 3. Continue efforts to improve safe driving in school zones. 4. Work with residents, schools, neighborhood associations, and law enforcement agencies to identify crosswalks where motorists fail to yield to pedestrians. 33 Engineering 1. Ensure that bicycle and pedestrian infrastructure is included in the annual City of Oshkosh Capital Improvement Program. 2. Coordinate with Winnebago County and adjacent townships to provide access on County and town roads through minimum Wisconsin Bicycle Facility Design Handbook standards, especially when those roadways have been identified as a bicycle route. 3. Implement bike trail connecting the Tribal Heritage Crossing Bridge to the Fox River and Rainbow Park. 4. Develop strategies to partner with Winnebago County to pave unpaved Wiouwash trail sections within Oshkosh. 5. Review and meet with the Transportations and Public Works Departments annually regarding road design guidelines for inclusion of bicycle and pedestrian facilities. 6. Improve Oshkosh Avenue/Sawyer Street intersection to accommodate multimodal transportation. 7. Work and coordinate with other jurisdictions to close gaps in the network 8. Review policies and maintenance schedules to ensure bicycle and pedestrian facilities are adequately maintained, including during the winter months. 9. Commit to becoming a recognized bicycle and pedestrian friendly community with designation sponsored by the League of American Bicyclists, the Federal Highway Administration, and America Walks 10. Incorporate the bicycle and pedestrian plan into future updates to local planning documents, such as the Comprehensive Plan, transportation plans, and park and open space plans. Equity Ensure equity is considered throughout all activities and goals. GENERAL BICYCLE AND PEDESTRIAN FACILITY RECOMMENDATIONS While useful to encourage and sustain walking and bicycling as transportation, operational programs and policies are enhanced with adequate facilities. Too often, multimodal facility planning is synonymous with planning separate trails. However, separate bike lanes and bike/pedestrian trails are the most costly of all facility improvements. Because of their direct costs and the amount of public right- of-way needed to accommodate these systems, separated bike paths and trails 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. Network Priorities It is critical to maintain a comprehensive vision for creating a "walkable" and "bikable" Oshkosh, which includes bike lanes, shared roadways, multi-use trails, 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. A transportation system that works for pedestrians will generally work better for bicyclists, disabled persons, automobile drivers, and for all other users, including transit and commercial vehicles. In the Wisconsin Pedestrian Policy Plan 2020, the Wisconsin Department of Transportation (WisDOT) articulated its commitment to accommodate pedestrians. WisDOT recognized its responsibilities for pedestrians and agreed to evaluate pedestrian needs on STH projects and minimize barriers in STH designs. 34 In order to form a well-connected non-motorized transportation system, the bicycle network was planned to utilize both on-street and off-street facilities. The routes and facilities recommended within this plan have been determined by keeping established transportation right-of-ways and rider safety in mind. Regardless of whether streets are included in this plan's designated bicycle network, bicyclists are allowed use all streets. Therefore, the recommended bicycle network has been developed primarily to formalize safe routes from "origins" to "destinations", eliminate gaps within the current network, continue the expansion of existing off-road facilities utilizing natural and other areas of opportunity, and improve access and connectivity for the bicyclist within the Oshkosh community. In order to prioritize future pedestrian improvements and bicycle facilities, the following section sets forth recommended project priorities. Best facility practices must be considered when any transportation network is developed, reconstructed or augmented. The policy and project priorities for pedestrians are more programmatic while those for bicycles tend to be physical in nature. NETWORK AND FACILITY INTERCONNECTIVITY IMPROVEMENTS Preferred bicycle and pedestrian routes are determined by the geography and planned growth patterns of the city. While the City of Oshkosh consists primarily of a grid street system, the grid is significantly altered by the area's waterways, lakes and I-41. As a result, the location and condition of bridges affect bicycle and pedestrian travel. Additionally, the nature of modern day development help to create disconnected pockets of residential and commercial development, which affect decisions to walk, bike, or drive. In some areas, past planning decisions preclude interconnectivity of the transportation system. The State of Wisconsin's Highway system and Winnebago County's freeway system also affect routes available to bicyclists and pedestrians. Suitably designed bikeways can be identified formally as "Bike Routes." Bike routes are segments of a system of roads that are designated with appropriate directional and informational markers. These routes indicate a major route that most bicyclists will feel comfortable using. The routes are not intended to link all possible locations, and bicyclists are not required to use these routes. New bicyclists and bicyclists new to the Oshkosh area will find these routes useful for getting to know the City of Oshkosh and Winnebago County by bicycle. The purpose of the proposed bicycle network is to safely link identified "origins" and "destinations" for residents and visitors of the city as well as to provide a connection with current or planned facilities outside the city. 35 Design approach The fundamental design consideration behind route determination that must be described is what type of bicyclist is most practically and best served by the city's bicycle facility network. For our purposes, bicyclists can be fit into one of three generalized groups: -Advanced Bicyclists—These users are "strong and fearless" cyclists. They log long hours on their bicycles and may be everyday bicycle commuters who often belong to a cycling club and take part in organized rides. Advanced riders tend to know best bicycling practices and operate on existing roadways. This group is best served by making every street bicycle friendly. -Intermediate Bicyclists—This group of bicyclists are casual riders who tend to be interested in cycling but concerned with safety. Intermediate riders typically understand the basics of best bicycle riding practices but limit themselves to low speed, low traffic streets and prefer well-defined separation of bicycles from automobiles such as riding on sidewalks This group is best served by identifying key travel corridors, determining what type of facility best serves their needs and where new or additional facilities are needed. -Novice Bicyclists— Novice bicyclists tend to be people new to bicycling. These riders have very little understanding of what it takes to safely operate a bicycle in most circumstances and often require monitoring with complete physical separation from vehicles or other transportation modes. This group of riders is best served through education programs and experience in order to move them to a intermediate bicyclist. It is recommended that facilities are designed with the intermediate bicyclist in mind, not the novice or advanced rider. The design approach focused on locating designated bicycle routes off unsafe, high traffic volume streets and truck routes, wherever possible. The group 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. Similar to bicycle facilities, designing pedestrian facilities with the most vulnerable users in mind ensures accommodations that are usable for everyone, regardless of ability. Facilities and Routes The Implementation Table lists recommended roadways to include facility improvements. This table coincides with Map X in Appendix X. The proposed recommended improvement is broken down into two geographic areas divided by the Fox River and designated as the Northside Oshkosh and Southside Oshkosh. It is further delineated into four sections that correlate with facility recommendations detailed in Chapter X— Best Facility Practices: • Signed and striped roadways • Signed and/or sharrows • Multi-use trail • Area/intersection for study. 36 NORTHSIDE OSHKOSH ROUTE LIST NAME FROM TO COMMENTS Facility Improvement North Main northbound Bridge East on Ceape, north on Circumnavigate narrow section State to Washington of North Main Street North Main-southbound Washington to State,south to Bridge Circumnavigate narrow section Otter,west to Commerce,south to of North Main Street Ceape,east to Main Market Algoma High N Main Murdock Snell Wisconsin Bridge Smith or Packer Possible extension to Packer, once constructed Vinland W Linwood Snell Future Packer Wisconsin Algoma Roadway does not yet exist Hamilton Linwood Future Packer Possible extension to Packer, once constructed Lake Shore Washington Merritt/Park Trail Washington N Main Lakeshore Murdock Bowen or future trail Hazel/Menomonie&Trail Bowen Bayshore Nicolet Nicolet Bowen Future trail or CTY A/Harrison Trails with rails proposed Harrison N Main Nicolet/future trail or CTY A Trails with rails proposed High New York Commerce UWO Campus Plan Algoma New York N Main UWO Campus Plan Elmwood W Irving New York UWO Campus Plan Smith Vinland Harrison Fernau N Main or future trail WIOUWASH Trails with rails proposed Snell Future trail or CTY A/Harrison US 4S/Stearns Trails with rails proposed Stearns W Snell CTY T/Ryf/Trail CTY T Stearns CTY Y Ryf Stearns Leach Consider sign and/or sharrow facility type as alternative School Bowen Rosalia E Melvin Bowen Hazel Nevada N Main Menominee/Hazel E Murdock N Main Bowen or future trail Possible Road Diet N Main Algoma/Washington Murdock New York Wiouwash Menominee/Hazel Park Connection Spruce/Vinland New York Linwood W Linwood Vinland Algoma CTY S Leach Brooks Leach Ryf CTY S Green Valley W Snell Jackson Walter Fernau Snell E Snell CTY A/Trail Sherman Sherman Lakefront/picnic point Snell Brooks CTY S Green Valley Continue west Indian Point CTY A/Channel View Jackson Sunny View CTY A/Trail Island View Island View Sunnyview/CTY Y Channel View 37 Channel View Sun nyview/CTY Y Indian Point W. Bent Trail Wisconsin Bayshore Broad/Trail Washington (via Frankfort Ceape, Rosalia) Court Trail Ceape Ceape Court Broad/trail Multi-Use Trail Facility Tracks off Broad Washington CTY Y Trails with Rails proposed At future Packer,once WIOUWASH Connections Algoma WIOUWASH Trail constructed WIOUWASH Connections Algoma WIOUWASH Trail At Linwood CTY Y Wiouwash trail Future trail or CTY A/Harrison Trails with Rails proposed West-East Railroad Connection Broad Trail Trails with Rails proposed 41 Intersection Indian Point CTY Y Coordinate with WI-DOT Menominee Park Merritt Murdock WIOUWASH/Riverfront Broad WIOUWASH trail Off-trail connection at Arboretum.Continue north CTY A CTY Y/Sunnyview Indian Point Continue north County Park Trail North- Snell CTY Y South Linkage/Community North-South Railroad Nicolet CTY Y/Sunnyview Trails with Rails Proposed Connection Broad Connection Bayshore trail Washington In ROW parallel with tracks Jackson CTY Y Brooks 38 SOUTHSIDE OSHKOSH ROUTE LIST NAME FROM TO COMMENTS S Main/Fond du Lac/USH 45 Bridge Fisk Continue south... Eagle Sawyer Creek Trail/Taft W 5th Trail proposed. Could stop at Taft Mason W 5th W 6th Connect to Franklin trail Emmers/Westhaven Omro W 9th Oakwood Omro STH 91/W Waukau Clairville W 9th Fisk Idaho W 5th W 6th Knapp Osborn W 20th Knapp Trail/Ripple CTY N Continue south... Minnesota W 20th W 23rd Oregon W 23rd Fisk Continue south... Taft N Campbell N. Koeller Witzel N Washburn S Oakwood Continue west... W 5th Idaho Lilac-W 7th-N Koeller Multiple road connection W 6th Fox River Trail/S Main Idaho W 9th S Washburn Clairville Continue west... W 12th S Main Ohio/Park connect at South Park trail Osborn Georgia/Park S Koeller connect at South Park trail W 17th S Main Knapp W 20th S Washburn Clairville Continue west... W 20th Minnesota W 20th Trail Trail proposed W 23rd/Doty Boat Launch/S Main Minnesota STH 91/W Waukau S Washburn Clairville Continue west... W Waukau Fond du Lac Oregon Fisk/CTY N USH 4S S Washburn Fisk S Washburn Clairville Continue west... Westowne N Westhaven N Washburn Omro Oshkosh USH 41 cross USH 41 Havenwood N Oakwood N Westhaven Security-Sunnybrook N Westhaven Sawyer Creek trail Trail proposed Dempsey Trail/N Campbell Witzel Trail proposed Southland N Sawyer Josslyn connect to Titan Stadium Trail Witzel Ohio/Bridge N Washburn cross USH 41 Abby S Washburn S Westhaven Easement thru private prop. 9th Ave S Koeller S Washburn cross USH 41 NAME FROM TO COMMENTS Michigan W 4th/Trail W 20th/Trail Trails proposed Knapp Osborn Witzel W 10th S Main Michigan Punhoqua Trail/Lake Graham Trail proposed Graham N Eagle Punhoqua N Eagle Graham Sawyer Creek Trail Trail proposed Mason-Huntington- Kensington W 9th Osborn Multiple road connection. 39 Florida Georgia Knapp Georgia Florida W 17th W 20th S Koeller S Washburn cross USH 41 State Rd 44/South Park Poberezny S Washburn cross USH 41 Minnesota W 6th W South Park Pheasant Creek W 9th Hayward Hayward Pheasant Creek Wellington Wellington-Sawyer Creek- Hayward S Oakwood Multiple road connection Ruschfield Mockingbird extended Wellington Clairville Alternative routes based on roadway construction Newport S Oakwood Westhaven Circle Westhaven Circle Maricopa W 20th Westhaven Circle S Westhaven Westhaven Circle W 9th W Ripple Fond du Lac Red Oak Trail proposed W Ripple Knapp S Koeller/Poberezney W Ripple S Washburn Clairville Country Club USH 45 Nekimi Multi-Use Trail Facility Washburn Oshkosh South... Special Study Area Koeller/Poberezny Oshkosh South... Special Study Area Sawyer Creek Clairville N Eagle Complicated tail/easement acquisition Oshkosh/State Rd 21 STH 41 N Westhaven Continue west... N of Abby S Westhaven S Washburn Easement/Alternative to Abby Signed Route SW Industrial Park trails W 20th State Road 91 Multiple trails based on Industrial Park Plans Casey Meadow/Trager Sawyer Creek W 20th Multiple trails along waterways School Trails Butte Des Mort-Fox River HWY 41 Oshkosh On golf course/park property Titan Stadium Trail Josslyn N Campbell Fox River Trail Dempsey S Main Pioneer Drive Trail S Main W 17th Coordinate with Pioneer redevelopment South Park Trail Georgia Ohio Park trail Franklin School Mason Huntington W 20th Ave Minnesota S Koeller Alternate to 3 block W 20th Bike Lane Creek Trail S Koeller/Poberezney Knapp Traverse Airport Ripple Connector Knapp W Ripple Traverse Airport Tracks W 20th W 23rd Rails with trails W South Park Trail Connector W 20th S Koeller/Poberezny Waterway Trail Fond du Lac Oregon/County I Waterway Trail STH 44/STH 91 S Washburn Trail Trail proposed Rail Line in SW Ind. Park S Washburn West... based on Industrial Park Plans Fox River Valley Rail Trail Fond du Lac Country Club Rd 40 Map X highlights sections of roadways identified for repair or improvement in the City's Capital Improvement Plan. It is recommended that priority be put on the facilities in this plan that overlap with the City's five-year Capital Improvement Plan. Implementation The Oshkosh Bicycle and Pedestrian Advisory Committee will continue to meet as necessary and they will select recommendations and projects from the plan to implement. The advisory committee will continue to provide guidance and feedback to City staff as it relates to the bicycle and pedestrian programs, issues, and the bicycle and pedestrian network. It was recommended that the Oshkosh Bicycle and Pedestrian Advisory Committee develop an implementation plan. FINANCING Financing the recommendations in this plan should be a joint effort between stakeholders outlined in the recommendations chapter. Funding and financing of a bicycle and pedestrian infrastructure project depends on the individual project and if it coincides with a reconstruction or resurfacing project. Typically it is more efficient at a local level to build in the cost of bicycle and pedestrian accommodations into a reconstruction project. While state and federal programs can help finance bicycle and pedestrian accommodations, the administration of state and federal grants may increase the cost of the entire project. Local Capital Improvement Programs (CIPS) As local streets are scheduled for reconstruction or resurfacing, bicycle and pedestrian accommodations should be considered by the local municipality. It is much more cost efficient to include bicycle and pedestrian accommodations as part of the project versus trying to retrofit once the project is completed. The costs of the bicycle and pedestrian accommodations can then be built into the cost of the project. Surface Transportation Program—Urban (STP-Urban) The Surface Transportation Program — Urban (STP-Urban) allocates federal funds to complete a variety of improvements to federal-aid-eligible roads and streets in urban areas. All projects must meet federal and state requirements. Communities are eligible for funding on roads that are functionally classified as a major collector or higher. Transportation Alternatives Program (TAP) The Transportation Alternatives Program (TAP) is a legislative program that was authorized in 2012 by federal transportation legislation, Moving Ahead for Progress in the 21st Century Act (MAP-21). Projects that meet eligibility criteria for the Safe Routes to School Program, Transportation Enhancements, and/or the Bicycle and Pedestrian Facilities Program will be eligible TAP projects. The funding ratio is usually 80%federal funds, 20% local matching funds. Highway Safety Improvement Program (HSIP) The Highway Safety Improvement Program (HSIP) is to develop and implement, on a continuing basis, stand- alone safety projects designed to reduce the number and severity of crashes on all streets and highways (both state and local). The federal funding ratio for the HSIP funds is usually 90%federal and a 10% match of state and/or local funds. The HSIP Program currently prioritizes sites that have experienced a high crash history with an emphasis on low-cost options that can be implemented quickly. Website: http://www.dot.wisconsin.gov/localgov/highways/hsip.htm 41 Recreational Trails Program (RTP) The Recreation Trails Program provides funds to develop and maintain recreational trails and trail-related facilities for both non-motorized and motorized recreational trail uses. The Fixing America's Surface Transportation (FAST) Act reauthorized the Recreational Trails Program (RTP) for Federal fiscal years 2016 through 2020 as set-aside funds from the Transportation Alternatives (TA) Set-Aside under Surface Transportation Block Grant Program (STBG). U.S. Department of Housing and Urban Development (HUD) Community Development Block Grants (CDBG) The CDBG program provided eligible metropolitan cities and urban counties (called "entitlement communities") with annual direct grants that they can use to revitalize neighborhoods, expand affordable housing and economic opportunities, and/or improve communities facilities and services, typically to benefit underserved communities (low- and moderate-income communities). Eligible activities include building public facilities and improvements, such as streets, sidewalks, sewers, water systems, community and senior citizen centers, and recreational facilities. Public/ Private Partnerships As federal and state funds become more competitive for local communities, it is recommended that local municipalities work with the private sector to help secure funds for various types of bicycle and pedestrian projects. The private sector could help to provide the 20% local match for state grant programs, making the local grant application more competitive for funding. Additionally, local businesses have a vested interest in bicycle and pedestrian accommodations, as healthy active employees help to reduce the businesses health insurance costs and employees are also more productive. Local health insurance companies are interested in having healthy residents, as it reduces the health insurance claims related to chronic diseases. Private and public partnerships should be explored by local municipalities as the built environment has a direct correlation with the health of local residents. Wisconsin Department of Transportation (WisDOT) Highway Safety Improvement Program (HSIP): http://www. dot.state.wi.us/localgov/highways/hsip.htm U.S. Department of Housing and Urban Development: http://portal.hud.gov/hudportal/HUD?src=/program_ offices/comm_planning/communitydevelopment/programs 42 Bicycle and Pedestrian Circulation Plan 2011 acknowledgements 2011 OSHKOSH COMMON COUNCIL Burk Tower, Mayor Steve Herman, Deputy Mayor Steve Cummings Bob Poeschl Debra Allison-Aasby Thomas Pech, Jr. Jeff Hall 2011 PEDESTRIAN AND BICYCLE PLAN STAKEHOLDER/STEERING GROUP Robert Breest, Oshkosh Sustainability Advisory Board David Buck, Oshkosh Community Development Department Steven Gohde, Oshkosh Department of Public Works Matt Halada, Wisconsin Department of Transportation James Kaprelian, Oshkosh Traffic Review Advisory Board Brian Kienert, Oshkosh Cycling Club Sandy Knutson, Oshkosh Health Department Michael Lizotte, University of Wisconsin Oshkosh Fred Luebke, Oshkosh Area Friends of Recreational Trails Shirley Brabender Mattox, Oshkosh Landmarks Commission Ray Maurer, Oshkosh Parks Department James Michaelson, Oshkosh Advisory Parks Board Ann Rumbuc, Safe Routes to Schools Jean Stebbins, Oshkosh Area School District Chris Strong, Oshkosh Transportation Department Jeffrey Thorns, Oshkosh Plan Commission Rob Way, Winnebago County Parks Mark Ziemer, Oshkosh Senior Center 2011 PLAN AUTHORS: David Buck, Principal Planner City of Oshkosh Jeffrey Nau, Associate Planner/GIS City of Oshkosh Schreiber/Anderson Associates Inc. Madison, Wisconsin 43 TITLE: City of Oshkosh Bicycle and Pedestrian Master Plan 2019 CONTACT: Alexa Naudziunas, Assistant Planner Oshkosh Planning Division PH: 920.236.5059 anaudziunas@ci.oshkosh.wi.us Jim Collins, Director Oshkosh Transportation Department PH: 920.232.5342 jcollins@ci.oshkosh.wi.us 2019 UPDATE AUTHORS: Kim Biedermann, Associate Planner East Central Wiscinson Regonial Planning Commission Melissa Kraemer-Badtke, Principal Planner East Central Wiscinson Regonial Planning Commission Alexa Naudziunas, Assistant Planner City of Oshkosh SOURCE OF COPIES: City of Oshkosh Planning Division 215 Church Avenue Oshkosh, WI 54901 PH: 920.236.5059 City of Oshkosh Transportation Department PH: 920.232.5342 City of Oshkosh Web Page www.ci.oshkosh.wi.us/Community_Development/Planning_Services/plans.asp 44