Kaiser Permanente Walk and Wheel Initiative: Final Evaluation Report
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1 Kaiser Permanente Walk and Wheel Initiative: Final Evaluation Report Walk Kaiser andpermanente Wheel May 2016 Initiative: Jill Litt, PhD University of Colorado Boulder, Environmental Studies Program Colorado School of Public Health Final Carolyn Evaluation McAndrews, PhD University of Colorado Denver, Department of Planning and Design Report May 2016 Jill Litt, PhD University of Colorado Boulder, Environmental Studies Program Colorado School of Public Health Carolyn McAndrews, PhD University of Colorado Denver, Department of Planning and Design
2 Acknowledgments This evaluation was supported by Kaiser Permanente Colorado. We gratefully acknowledge the assistance of our research assistants from the Colorado School of Public Health and the College of Architecture and Planning at CU Denver, including: Beret Odell, Drew Stiehl, Mahalia Hopkins, Susan Reed, Kenta Okuyama and numerous volunteers who stepped up to help generate local information about bicycling and walking along Colorado s Front Range. Moreover, we are grateful for the grantees willingness to share their experiences, stories and information about the range of strategies advanced in the funded communities. We are also thankful for the support and guidance of the Technical Assistance team, which included Jenna Berman, Dan Grunig, Ted Heyd, Carlos Hernandez, Will Toor, Desiree Westlund Cindric, Rachael Running, and our Kaiser grant officers, Amy Pulver and Tristan Sanders. The contents of this report are the authors sole responsibility and do not necessarily represent the official views of Kaiser Permanente Colorado. Suggested citation: Litt, Jill S. and Carolyn McAndrews Kaiser Permanente Walk and Wheel Initiative: Final Evaluation Report. University of Colorado. 2
3 WALK AND WHEEL FINAL EVALUATION REPORT Executive Summary Background The Kaiser Permanente Colorado Walk and Wheel grant program, which began in 2014, aimed to increase walking and bicycling for recreation, transportation, and everyday activities by partnering with local public works, planning, and parks departments. The goal of these partnerships was to prompt systemic changes in policies and built environments to be broadly supportive of increasing physical activity among community members. Partnering with local governments to develop upstream interventions is what set Walk and Wheel apart from previous approaches. Previously, such programs relied on behavior-focused interventions to increase physical activity. Upstream interventions, such as creating bicycle and pedestrian plans, are important because they are a step toward making built environments more supportive of individuallevel behavior change. The evaluation was organized around three themes that reflected the most salient issues that grantees discussed during initial intake meetings and in their grant proposals. These themes included: (1) education and encouragement; (2) planning and policy change; and (3) built environment change. For each of these themes, we assessed the program s reach and grantees fidelity to their proposed work. The evaluation used mixed methods to collect and analyze information about the funded sites and their activities. We conducted in-depth interviews with grantees about their active transportation partnerships, existing institutions that support active living, and opportunities for capacity building in active transportation. In addition, we developed an online engagement tool to gather information about community values and walking and bicycling behaviors and attitudes from event participants, residents, and workers in each funded site. To systematically compare the ten sites and answer our evaluation questions, we developed indices reflecting the extent to which each grantee s strategies collectively advanced education and encouragement, planning and policy change, and built environment change. The indices combined standardized metrics widely used in pedestrian and bicycle planning practice with Walk and Wheelspecific metrics. 3
4 Community Readiness The diverse community contexts included in the grant program was one of its strengths. The Walk and Wheel grant program successfully worked with multiple types of communities (e.g., rural, low density, suburban and urban densities) that faced significant and diverse challenges to advancing walking and bicycling. The Walk and Wheel Technical Assistance (TA) team was effective in this variety of policy and population contexts. The team included highly skilled experts who were a strategic part of the grant program. Their participation enabled grantees to be effective in two ways. First, the TA team worked with multiple sites to overcome political obstacles, which took their projects further than would have been possible otherwise. Second, the TA team used its technical experience to strengthen planning processes by informing the scope and content of requests for proposals and emphasizing implementation and feasible action steps. Impact of Walk and Wheel The Walk and Wheel grant program invested $1 million in ten communities across the Front Range. This investment led to three new bicycle master plans, a bicycle education and safety plan, and six new bicycle infrastructure design studies. The grants also prompted eight of the ten sites to adopt Healthy Eating Active Living campaign resolutions that indicate local governments broader commitment to joining LiveWell Colorado s initiative. With respect to reach, all ten communities organized Walk and Wheel-sponsored events and these events reached at least 6,000 participants with one exception: open streets events in Fort Collins attracted an additional 14,000 participants. Grantees events primarily focused on bicycling, and they typically reached bicycle enthusiasts who were physically active. Such events included Bike to Work Day, group bike rides, youth-focused bike rodeos, infrastructure demonstration projects, and community engagement meetings. 4
5 WALK AND WHEEL FINAL EVALUATION REPORT Education and Encouragement The ten grantees offered a total of 52 events to promote and encourage bicycling. For local governments, events were the most common point of entry into education and encouragement. Events were the platform for inter-agency and multi-sectoral coordination and cooperation, they energized agency staff and advocacy groups, and gave voice to local residents. Although the goal was to reach interested but concerned bicyclists and more sedentary residents, the events attracted more physically active people. In total, over 6,000 people participated in these events, with the exception that an additional 14,000 participated in open streets events in Fort Collins. These events included eight Bike to Work days, open streets events, four programs focusing on children and youth, and various types of community bike rides and festivals. When communities included education and encouragement alongside other policy and built environment strategies, the reach of these efforts was much greater. Without an education and encouragement component, strategies reached about 430 participants. Policy and Planning Kaiser funding mobilized communities to create policy change in different ways based on their starting points. Walk and Wheel effectively enabled communities of all types to progress toward policy change. For communities with existing capacity, it enabled them to advance an agenda that they had already established. For a community such as Colorado Springs with barriers to formalizing active transportation policy, it allowed them to build strategic partnerships and to build understanding of how the active transportation community can mobilize within its specific context. For certain communities, such as Aurora, with several existing plans and planning capacity, investing in capital projects and plan implementation would have taken them further toward their Walk and Wheel goals, but capital projects were not a focus of the Walk and Wheel grant program. 5
6 Built Environment Relatively few communities emphasized changes to the built environment, which is explained by the 20 percent limit set by the grant for capital improvements. Examples of built environment activities that communities carried out include demonstration projects, striping bicycle lanes, installing bicycle detectors at signals, and installing bicycle and pedestrian counters. Implications and Conclusions With respect to the broader impact of the grant program, the Walk and Wheel investment was unique because it enabled grantees working primarily in the transportation sector to engage with public health motivations for walking and bicycling. This is because achieving the larger social goal of improving health outcomes and preventing disease depends on both the health sector and other policy sectors such as transportation. In the example of Walk and Wheel, Kaiser Permanente Colorado, a public health organization, made a direct investment in the transportation sector, specifically to influence decision making around walking and bicycling as viable modes of transportation. In this cross-site evaluation we found that the public health framing of the grant program was indeed important for its success in certain communities where the public health message motivated policy actors to support transportation system change. However, in most cases, the day-to-day work of public health and transportation practitioners existed side by side and did not form a cohesive approach. For example, public health practitioners are rarely part of transportation decision-making processes. Also, the traditional expertise of transportation departments does not include health behavior. When the transportation sector does engage with walking and bicycling, it emphasizes the supply of infrastructure, whereas the use of infrastructure is also important for achieving public health goals. Walk and Wheel presents a critical opportunity to develop a more integrated approach to achieve shared goals of physical activity and multi-modal transportation, and to test its implementation. Specifically, an integrated public health-transportation understanding of physical activity is needed to: (1) reconcile tensions between recreational and utilitarian travel investments and designs; (2) identify and engage with populations that are less physically active or less connected to bicycle and pedestrian advocacy networks; and (3) develop a model of physical activity that captures elements of both health behavior and travel behavior in the context of daily living. 6
7 WALK AND WHEEL FINAL EVALUATION REPORT TABLE OF CONTENTS Executive Summary 3 Introduction 8 Background 10 Evaluation Approach 12 Outcomes of the Walk and Wheel Grant Program 16 Evaluation Theme 1: Education and Encouragement 18 Evaluation Theme 2: Planning and Policy Change 21 Evaluation Theme 3: Built Environment Change 24 Reach of Communities Strategies 26 Lessons Learned and Recommendations 33 References 42 Appendix 43 7
8 Introduction Communities with supportive environments for walking and bicycling foster healthy, active lifestyles and healthier people. Yet, many environments are not safe and comfortable for everyday walking and bicycling. This dilemma reinforces the widespread problems of sedentary time and physical inactivity, which have corresponding consequences for poor health as well as associations with health disparities[1, 2]. The transportation sector shares this challenge, and also seeks ways to provide active transportation choices[3-5]. Partnering with local governments and worksites to develop upstream interventions is what set Walk and Wheel apart from previous approaches to increasing physical activity. The Kaiser Permanente Colorado Walk and Wheel grant program, which began in 2014, aimed to increase walking and bicycling for recreation, transportation, and everyday activities. The grant operationalized this aim through two types of partnerships with local governments and worksites. These partnerships had the goal of prompting systemic changes in policies and built environments to be broadly supportive of increasing physical activity among community members and employees. 1 Partnering with local governments and worksites to develop upstream interventions is what set Walk and Wheel apart from previous approaches to increasing physical` activity. Previously, such programs relied primarily on behaviorfocused interventions. Yet, we know that people walk and bike more when streets are safer, sidewalks and trails more connected, and traffic calmer. Therefore, upstream interventions that involve transportation, public works, and planning partners are necessary to develop policy frameworks, such as bicycle and pedestrian plans, to make built environments more supportive of individual-level behavior change. This cross-site evaluation report focuses on grants to ten local governments (see Figure 1). In this report, we present findings about how the grantees used their Walk and Wheel projects to develop and implement strategies that potentially increase walking and bicycling, as well as the outcomes of these strategies. The evaluation focuses the three primary levers of change that communities pursued: (1) education and encouragement; (2) planning and policy change; and (3) built environment change. Our evaluation focuses on the specific role of the Walk and Wheel initiative as a catalyst for these changes. 1 For information about the worksite grantees, please refer to Walk and Wheel Worksite Evaluation Report. 8
9 WALK AND WHEEL FINAL EVALUATION REPORT Figure 1: Local Governments Funded by the Walk and Wheel Grant Program The following section of this report presents background information about the grantees and our approach to the evaluation. Section three discusses how the grantees developed and implemented their Walk and Wheel projects and what kinds of changes occurred. Section four presents findings about walking, bicycling, and community values from the point of view of end users in each community. The final section presents our overall evaluation findings and opportunities for future development of the Walk and Wheel grant program. 9
10 Background Increasing Walking and Bicycling in Diverse Land Use and Transportation Contexts A key characteristic of the Walk and Wheel initiative is that the grantees had diverse land use and transportation contexts. This is important because walking and bicycling are modes of travel often associated with dense urban environments. The Walk and Wheel initiative provided broader insight into how rural, small, and low-density communities also create bike- and walk-friendly communities. Throughout much of this report our findings focus primarily on grantees efforts to create bicycle-friendly communities. Although walking was a fundamental goal of the Walk and Wheel initiative, most communities used the grant to enhance their bicycle-focused plans, programs, and events. Therefore, our evaluation includes more information about grantees efforts to create bike-friendly communities than their efforts to promote walk-friendly communities. The Walk and Wheel initiative provided broader insight into how rural, small, and low-density communities also create bikeand walk-friendly communities. In Figure 2, we use population density and bike network density as two indicators to illustrate each community s land use and transportation starting points. These are the contexts in which communities undertook bicycling-related plans, programs, and events. The diversity of these starting points allowed us to investigate bicycle-planning typologies for rural, small, and low-density areas, as well as for urban contexts. Population density ranged from 63 people per square mile in Weld County to 6,011 people per square mile in Lone Tree, a growing suburb of Denver. For context, moderate-density urban environments in the US have population densities around 12,500 people per square mile and low-density suburban settlement patterns have population densities around 1,500 people per square mile [6]. Colorado s highest population density is 17,557 people per square mile (at the ZIP Code Tabulation Area level), and the state s median population density is 1,184 people per square mile. Based on this population density metric, the Walk and Wheel grant program included rural, small, and low-density communities as well as some of the state s more urban places. The Walk and Wheel grant program also included communities with a range of existing bicycle infrastructure. In Figure 2, the bike network density measure includes on-street and off-street infrastructure, and is an indicator of a community s existing investment in infrastructure to support bicycling. Bike network density ranged from
11 WALK AND WHEEL FINAL EVALUATION REPORT miles to 3.9 miles of bike infrastructure per square mile. For context, a national survey of 52 large cities in the United States found that these large cities had an average of 1.6 miles of bike infrastructure per square mile. The large cities in the US with the most dense bicycle networks included San Francisco (7.8 miles/mi 2 ), Austin (4.6 miles/mi 2 ), and Long Beach (4.5 miles/mi 2 ) [7]. In comparison, half of the Walk and Wheel grantees have Figure 2: Population and Bicycle Network Density by Community bicycle network density greater than the national average, and four grantees have bicycle network densities approaching a high level. Among the Walk and Wheel grantees, Lone Tree, Englewood, Greeley, Lafayette, and Fort Collins have relatively high population density (above the median of 2,448 people per square mile for funded communities). The average bicycle network density in these relatively dense communities was 3.1 miles/ mi 2 whereas the bicycle network density was only 1.0 in communities with lower population density. 11
12 Evaluation Approach Each community s Walk and Wheel project was unique, but the typical project built upon existing local programs and capacities to create a more bike-friendly community. Several grantees created a new bike plan or updated an existing one. All grantees hosted community-based events to build community support for bicycling, and in a few instances for walking too. Communities drew upon the capacity of local partnerships, advocacy organizations, and consultants to realize their goals. Certain communities made progress implementing changes to the built environment, such as striping bike lanes, but capital projects were not the focus of the Walk and Wheel initiative, given the funding level of this grant ($100,000 per grant) and a cap of 20% of expenditures on capital projects. We used mixed methods to collect and analyze information about the funded sites and their activities. We conducted in-depth interviews with grantees about their active transportation partnerships, existing institutions that support active living, and opportunities for capacity building in active transportation (Policy Landscapes Advancing Active Transportation Networks and Modes, PLAATNM). In addition, we developed an online engagement tool (with MetroQuest) to gather information about who attended events and other activities sponsored by grantees as well as their community value and walking and bicycling behaviors and attitudes. 2 We organized this evaluation around three themes that reflected the most salient issues that grantees discussed during initial intake meetings and in their grant proposals. These themes include: (1) education and encouragement; (2) planning and policy change; and (3) built environment change (see Table 1, Figure 3). For each of these themes, we assessed the program s reach and grantees fidelity to their proposed work. 2 The Policy Landscapes Advancing Active Transportation Networks and Modes (PLAATNM) interview focused on policy and institutional contexts and the MetroQuest survey was an online community engagement tool that asked about values, walking and bicycling behaviors, and demographic characteristics. 12
13 WALK AND WHEEL FINAL EVALUATION REPORT Figure 3: Core Strategy Areas of the Walk and Wheel Grant Program and Themes and Questions Guiding the Walk and Wheel Evaluation Education and encouragement Did grantees use education and encouragement to engage residents and other stakeholders? If so, did the investment strengthen grantees portfolio of strategies and in what ways? Planning and policy How did grantees use planning and policy to address the Walk and Wheel goal of increasing physical activity? What organizational capacities (e.g., partnership, training) were developed to support grantees Walk and Wheel goals? What aspects of institutional environments and organizational conditions influence Walk and Wheel projects? Built environment Have features of the built environment that support changes in walking and bicycling-related attitudes, norms, and behaviors been used, augmented, or changed to advance Walk and Wheel goals? 13
14 Indicators for Impact Evaluation We developed a set of measures to quantify communitylevel progress in advancing bicycle and pedestrian policies and programmatic improvements. These measures include standardized metrics widely used in pedestrian and bicycle planning practice, as well as Walk and Wheel-specific metrics. Figure 4 presents the measures that we included, organized into three different indices representing education and encouragement, planning and policy change, and built environment change. This use of indices was inspired, in part, by communities frequent reference to the League of American Bicyclists certification system, which evaluates communities for bicycle friendliness. According to interviews with Walk and Wheel grantees, this extrinsic rating system is key for communicating impact to local decision-makers. With this in mind, we wanted to know how Colorado communities stacked up against other communities, and how the changes created through participation in the Walk and Wheel initiative aligned with national certification frameworks that bestow upon communities bicycle-friendly ratings such as Diamond, Platinum, Gold, Silver, and Bronze. were based on practices that were specific to the Walk and Wheel initiative, such as the implementation of bike infrastructure demonstration projects. We collected data about the indicators through the PLAATNM interview, the MetroQuest public engagement tool, a structured survey of project staff at the mid-point and the end of the grant period, and consultations with the Walk and Wheel Technical Assistance team. Specifically, we included measures from the Alliance for Biking & Walking s 2014 Benchmark Report [7], the League of American Bicyclist s Bicycle Friendly Community award application [8], and the Walk Friendly Communities assessment tool [9]. In addition, our indices 14
15 WALK AND WHEEL FINAL EVALUATION REPORT Figure 4: Metrics Included in the Indices Measuring Change Resulting from Walk and Wheel Investment Education and encouragement Planning and policy change Built environment change Provide courses or training Bike to Work Day Open Streets events City sponsored/grant sponsored events Ambassadors programs Bike or walk challenges Programs encouraging women to walk or bike Programs encouraging families/ children/ youth to walk or bike Bike library or bike share Provide maps or wayfinding Infrastructure demonstration project Employ a bicycle or pedestrian coordinator Organize a forma bicycle and/or pedestrian advisory committee Formal engagement with a bicycle or pedestrian advisory organization Pursuit of a Bike Friendly award or designation Adopt a Healthy Eating Active Living (HEAL) resolution Adopt a complete streets policy Adopt a bicycle plan Adopt a pedestrian plan Provide local funding to match Walk and Wheel funding Leveraged other grants or funding to enhance Walk and Wheel Bicycle detectors or traffic signals Miles of new bicycle infrastructure Added new pedestrian infrastructure Infrastructure demonstration project Built environment studies (e.g., gap analysis) 15
16 Outcomes Portfolio of Strategies Implemented by Grantees The ten local government grantees funded by the Walk and Wheel grant program discussed, developed, adopted and/or implemented a total of 52 strategies. The majority of grantees focused on increasing bicycling in their communities. Grantees pursued fewer strategies focused on increasing walking. We categorized these strategies into three groups: Figure 5: Distribution of Strategies across Education and Encouragement, Planning and Policy Change, and Built Environment Change Categories Education and encouragement: Examples include individual counseling, skill building, rewards or reinforcement, events, and lunch and learn sessions; Planning and policy change: Examples include advisory committees, plan development, funding applications, complete streets policy, and bike corridor studies; Built environment change: Examples include bike lockers, bike libraries, lane striping, and demonstration projects. 16
17 WALK AND WHEEL FINAL EVALUATION REPORT These core areas allow us to understand whether communities are intervening at different levels such as individual-level attitudes, skills, and travel behaviors (31%); institutional settings, laws, and policies (27%); and physical settings and infrastructure to support bicycling (13%). Table 2 provides exemplars of specific strategies that were used in this grant program. Some of these strategies span multiple categories and combine environment with education and encouragement (13%), policy with education and encouragement (17%), and environment with policy (2%). Figure 5 presents the distribution of strategies across the categories. Table 1: Exemplar Strategies Used by Walk and Wheel Communities Example Course and Training Bike 2 Work Day Education and encouragement X Planning and policy change Bicycle Master Plan X X Advisory Committee X X X Built environment change Bicycle Counters X X HEAL Resolution Bike Library X X Demonstration Project X X Multi-Use Trail X X 17
18 1 Education EVALUATION THEME: Education and Encouragement and encouragement are critical elements of physical activity-related behavior change. They represent direct outreach and engagement with target populations, and they create public awareness and support for planning and policy change. All ten grantees offered events to promote and encourage bicycling. Together, they offered 52 events that reached over 20,000 participants. These events included eight Bike to Work days, one open streets event (14,000 participants), four children and youth-focused programs, and community bike rides (see Table 3). When communities included education and encouragement alongside strategies focusing on policy and built environment change, the reach of these efforts was greater. Without an education and encouragement component, strategies reached approximately 430 participants (410 participants for policy strategies and 20 for environmental strategies). Figure 6 presents the change in communities investment Table 2: Participation in Community Strategies by Strategy Type Strategy Type Number of strategies with estimates of participation Number of strategies missing estimates of participation Total number of participants reached Average number of participants per strategy * Minimum number of participants per strategy * Maximum number of participants per strategy * Policy Education and encouragement ,583 2, ,000 Education and encouragement and policy Environment Environment and policy Environment and Education and encouragement Education and encouragement and environment and policy TOTAL , ,000 18
19 WALK AND WHEEL FINAL EVALUATION REPORT in education and encouragement activities as a result of Walk and Wheel. Our education and encouragement index is based on a set of 11 indicators including: bicycle ambassador programs, availability of bike system maps, open streets events, bike to work days, bicycle libraries and bike share programs, and community-based events such as group bike rides (see indicators in Figure 4). Communities with the highest degree of change, such as Fort Collins, Pueblo, Milliken and Colorado Springs, implemented multiple education and encouragement strategies to engage the public, and many of these strategies went above and beyond city-sponsored events. For example, Fort Collins set a goal to increase the commute mode share of women; to achieve this goal, Fort Collins implemented the Women on a Roll program to encourage bicycle riding among women. Similarly, Pueblo invested in communitybuilding activities with an emphasis on organized community bicycle rides. Colorado Springs developed a range of programs that reached not only working adults but also children and youth in higher risk environments. Across grantees, education and encouragement strategies were notable because they developed social networks and increased residents experiences with bicycling in everyday settings. Figure 6: Bicycle and Pedestrian Education and Encouragement Before and After Walk and Wheel Investment 19
20 When communities included education and encouragement alongside strategies focusing on policy and built environment change, the reach of these efforts was greater. Communities with lower education and encouragement change index scores used fewer education and engagement strategies. In some cases, communities organized active transportation events, but did not develop other programmatic ways to engage directly with residents. Communities with lower education and encouragement change index scores used fewer education and engagement strategies. Characteristics such as population density and bike network density may not explain the differences between the highest and lowest change scores. Instead, the more relevant factors may be the degree to which bicycle advocacy organizations were involved with the grant (e.g., Pueblo), the strength of active transportation-related professional peer networks (e.g., Colorado Springs), and the existing base of active transportation policy and planning capacity (e.g., Fort Collins). For the communities with the greatest change, the approach to education and encouragement was multifaceted, including a mix of events, classes, and challenges with specific populations such as women, children and youth. 20
21 WALK AND WHEEL FINAL EVALUATION REPORT 2EVALUATION THEME: Planning and Policy Change Walk and Wheel effectively guided grantees to advance planning and policy solutions to address bicycling in a diverse set of communities. All ten communities emphasized the use of policy and planning to change both the institutional and built environment conditions for bicycling, with less emphasis placed on walking. The Walk and Wheel initiative led to three new bicycle master plans, one bicycle education and safety plan, and six new bicycle infrastructure design studies. The grants also prompted eight of the ten sites to adopt Healthy Eating Active Living campaign resolutions that indicate local governments broader commitment to joining LiveWell Colorado s initiative. One community used the grant to support the adoption of a complete streets policy. Kaiser funding mobilized communities in different ways based on their starting points. Some were working with an established pedestrian and bicycle policy and planning base, whereas others were taking first steps. In some cases communities worked on formalizing policies that support active transportation, whereas others used informal mechanisms to move toward their goals. Walk and Wheel effectively enabled communities of all types to progress toward policy change. Achieving the broader aims of the Walk and Wheel program requires a diverse set of stakeholders working at the intersection of policy, planning, infrastructure design, and behavior. Communities responded to this challenge by leveraging existing multi-sectoral partners and developing new partnerships. These partnerships were especially important for communities unable to codify their work through formal policies and adopted plans. In some cases communities worked on formalizing policies that support active transportation, whereas others used informal mechanisms to move toward their goals. Walk and Wheel effectively enabled communities of all types to progress toward policy change. For example, Greeley s bicycle planning process included an Internal Review Team (IRT) with representatives from city and county departments, as well as healthcare organizations. Working together with the consultant team, the IRT provided input on the plan s bicycle infrastructure needs assessment and produced a list of recommendations to address these needs. The IRT galvanized support for 21
22 active transportation in Greeley by working across silos to establish and accomplish common goals related to bicycling. The Walk and Wheel project in Colorado Springs is also notable for its partnerships. A network of city department staff members collaborated to develop the Walk and Wheel grant proposal, and these departments coordinated with local nonprofit organizations to carry out the projects. Colorado Springs had fewer opportunities to formalize new active transportation policies, but community members overcame this challenge by using their networks to bring about change. All ten grantees said that partnerships were essential to carrying out successful projects, and no grantees worked in isolation. Grantees engaged with numerous groups, including: Local employers, chambers of commerce; Local government departments such as planning, transportation and public transit, public works, public health, parks and recreation; The Colorado Department of Transportation; Local, state, and national pedestrian and bicycle advocacy groups; National and state professional organizations; and Transportation planning and engineering consultants. The formation and maintenance of these partnerships is a critical part of the policy process. Partnerships and other aspects of policy change are captured in Figure 7, which presents the change in communities pedestrian and bicycle policy capacity as a result of the Walk and Wheel investment. The scores are derived from an 11-item index that captures various elements of policy change, including indicators such as: the formal creation of pedestrian and bicycle advisory committees, the adoption or update of bicycle plans, the adoption of complete streets policies, the creation of formal positions for bicycle/pedestrian coordinators, as well as the acquisition of matching government and grant funding to leverage the Walk and Wheel support (see indicator list in Figure 4). Lone Tree is an example of a community that made significant progress formalizing new active transportation policies in anticipation of future development, specifically the build-out of a large subdivision and the expansion of light rail transit into the area. Lone Tree started its Walk and Wheel projects without an existing active transportation policy base no bicycle plan, nor the supporting networks, organizations, and institutions associated with active transportation advocacy. Lone Tree focused on creating a bicycle master plan, establishing a bicycle advisory committee, and codifying street design standards that can inform future development. 22
23 WALK AND WHEEL FINAL EVALUATION REPORT Weld County demonstrated significant capacity for policy change by establishing a bicycle/pedestrian advisory committee, partnering with an established bicycle/pedestrian advocacy organization, leveraging significant external funding for trail improvements, and creating a preliminary trail improvement study. Although Weld County did not formally adopt new policies or plans, it advanced intermediate policy processes such as building partnerships that can help it achieve formal policy change in the future. Fort Collins represents a community at a different stage of policy change. Fort Collins built upon its established bicyclefriendly policies to develop a bicycle safety and education plan as a complement to its built environment improvements. Fort Collins also used the Walk and Wheel grant to create a business plan for a bike share program and to work toward a higher-level designation from the League of American Bicyclists (i.e. moving from platinum to diamond status). In contrast, smaller communities such as Milliken, a town of about 6,000 people that is located in Weld County, did not have the capacity to undertake the range of policy and planning strategies that were associated with larger communities such as Fort Collins. Milliken is at an early stage of policy development as it continues to negotiate the construction of a multi-use trail connecting it to activity centers in neighboring Johnstown. Figure 7: Bicycle and Pedestrian Policy Capacity Before and After Walk and Wheel Investment 23
24 EVALUATION THEME: 3Built Environment Change Changes to the built environment represent a third category of intervention to increase bicycling in Walk and Wheel communities. Relatively few communities emphasized this approach, which is explained, in part, by the 20% limit set by the grant for capital improvements. Examples of built environment activities that communities carried out include demonstration projects, striping bicycle lanes, installing bicycle detectors at signals, and installing bicycle and pedestrian counters. Figure 8 presents an environmental change index based on ten indicators representing each community s use of built environment strategies. These indicators include investment in bicycle infrastructure, investment in pedestrian infrastructure, demonstration projects, and design-related activities to inform future projects. Two communities Pueblo and Milliken added new bicycle facilities. Pueblo striped more than 13 miles of bike lanes, which increased its bike network density from 0.8 to 1.1 miles of bike infrastructure per square mile, a 37% increase. Milliken added 0.5 miles of a new mixed-use trail, increasing its bike network density from 2.0 to 2.1 miles of bike infrastructure per square mile. Several communities such as Milliken, Lafayette, Colorado Springs conducted gap analyses and similar work to inform the design of future bicycle and pedestrian infrastructure. Three communities experimented with demonstration projects. Figure 8: Built Environment Change Before and After Walk and Wheel Investment 24
25 WALK AND WHEEL FINAL EVALUATION REPORT Reach of Communities Strategies Demographics and Community Values We examined the reach of grantees strategies by learning about who participated in community-organized events and other promotional activities sponsored by Walk and Wheel. We developed an online engagement tool using a platform developed by MetroQuest. In cooperation with each grantee, we administered this survey at Walk and Wheel-related events. These events included Bike to Work Day, group bike rides, community festivals, and community engagement meetings. In addition to face-to-face administration at community-sponsored events, grantees used social media to drive community members and government employees to the online tool. safe streets and schools ranked the highest in terms of what they value most in their community (77%). For respondents aged 18-34, over 50% ranked parks and recreation and access to nature as most important. For those aged 35-49, respondents ranked parks and recreation and schools as most important. For those over 50, respondents ranked parks and recreation and access to nature as most important. Figure 9: Survey Responses by Community Table 4 presents descriptive information about participants in Walk and Wheel-sponsored events and other promotional opportunities. We received more than 1,900 responses to the survey in 2014 and Over half (58%) of respondents were women and 63% of the respondents were under the age of 50. Figure 9 presents the distribution of responses across the grantees. Forty-nine percent of responses came from Colorado Springs, Fort Collins, and Lafayette. We asked respondents to rank their most important community values. For young people, 25
26 Geographic Representation: Urban, Suburban, Lower Density Suburban, and Rural We calculated the population density of respondents selfreported ZIP Codes with information from the 2010 US Census, and grouped residents by density rural (less than 200 persons per square mile), low-density suburban (200-1,200 persons per square mile), suburban (1,200-2,400 persons per square mile), and urban (more than 2,400 persons per square mile) places. We selected these thresholds because they represent population density quartiles for the state of Colorado. Only about 30% of respondents lived in ZIP Codes with urban population density. Twenty-one percent of respondents lived in places with suburban population density, 40% at low-density suburban levels, and 9% at rural population density. Only about 30% of respondents lived in ZIP Codes with urban population density. Twenty-one percent of respondents lived in places with suburban population density, 40% at low-density suburban levels, and 9% at rural population density. This geographic distribution of respondents across the Front Range allowed us to compare community values, activity behaviors, and related barriers to transportation- and recreation-related activity across different transportation and land use contexts. Table 3: Summary of Survey Respondents by Gender, Age, Bike Style, and Residential Location Gender N % Female 1, Male Gender not listed 2 0 Age Bike style No way Concerned Confident Strong Residential location Rural Low density suburban Suburban Urban
27 WALK AND WHEEL FINAL EVALUATION REPORT Bicycling Behaviors Walk and Wheel events reached people who bicycle for recreation and transportation purposes. Among women, 96% reported that they ride for recreation and 86% said that they ride for transportation (i.e., utilitarian trips). Among men, 98% percent of men reported bicycling for recreation and 93% reported bicycling for transportation. 40% of men and 20% of women reported bicycling three days per week or more for recreation and/or utilitarian purposes Bicycling participation rates among women are generally lower than those for men. This gender difference was a central concern for Walk and Wheel grantees. For example, Fort Collins established the goal of increasing the number of women who commute by bicycle. Fort Collins also used the Walk and Wheel grant to support programming such as the Women on a Roll initiative, which included organized rides and education for women. Figure 10: Bicyclists who ride three days per week or more by trip purpose and gender In addition, 40% of men and 20% of women reported bicycling three days per week or more for recreation and/ or utilitarian purposes (see Figures 10 and 11). Moreover, when characterizing bike style, the majority of men and women described themselves as confident and strong riders. This typology, describing people who use bicycles for transportation[10], included four categories: strong and fearless, enthused and confident, interested but concerned, and those who do not bike [8]. About 80% of male respondents and 50% of women respondents self-described as confident or strong riders. Of the confident cyclists, 35% bicycled three or more days per week. Of the strong bicyclists, 54% bicycled three or more days per week. 27
28 Approximately 23% of women and 38% of men bicycled to or from work In the 2015, we added questions about bicycling and walking to and from work, during the work or school day, and outside of work. Approximately 23% of women and 38% of men bicycled to or from work, with a much smaller fraction of respondents bicycling during the work or school day (10% and 18% respectively). For those who reported bicycling to and from work, 40% were and Figure 11: Self-reported level of bicycling expertise by gender about 25% were 35 and over. Only 17% of rural residents reported bicycling to and from work and 50% of suburban respondents reported bicycling to and from work. On average, only 10% of survey respondents reported walking to or from work or school. However, about 40% of respondents reported walking during the work or school day. Only 23% of rural residents reported walking during the work or school day compared to 44% of low density suburban respondents. Only 10% of survey respondents reported walking to or from work or school. However, about 40% of respondents reported walking during the work or school day. 28
29 WALK AND WHEEL FINAL EVALUATION REPORT Barriers to Bicycling Barriers to bicycling include a mix of built environment and behavioral factors (see Figures 12 and 13). Beyond weather, the most-cited environmental barrier to bicycling was a lack of traffic safety or too much motorized traffic (61% for both men and women). Traffic was an important barrier for bicyclists of all levels of expertise except those who say that they do not bike. A lack of personal security and fear of crime was also an important environmental barrier, more so among women than men (38% to 29%, respectively). A lack of personal security was also more important for more novice bicyclists. Forty-three percent of the interested-but-concerned said that this was a barrier compared to 25% of strong bicyclists. In contrast, men and strong cyclists were most likely to report a lack of bicycle parking, showers, or other supportive as barriers to bicycling more often. The most-cited environmental barrier to bicycling was a lack of traffic safety or too much motorized traffic (61% for both men and women). Traffic was an important barrier for bicyclists of all levels of expertise Figure 12: Top barriers to bicycling more often by gender Behavioral factors such as time and distance are also barriers, reflecting the time budget in which people make decisions about their activities and travel modes. Both women and men reported this as a barrier to bicycling more often (45% and 43%, respectively). A smaller proportion of respondents reported the need for a car as a barrier (22% of women and 18% of men). Needing a car was the top barrier for those who self-identify as No way bicyclists. 29
30 30 Figure 13: Top barriers to bicycling more often by bike style
31 WALK AND WHEEL FINAL EVALUATION REPORT Walking Behaviors We assessed walking behaviors among Walk and Wheel participants by asking about the frequency and intensity of walking. Almost half of participants reported high frequency of walking (i.e., walking six or more times per week). Of those reporting walking most days of the week, the frequency varied by age. For example, 38% of those aged reported this frequency compared to 56% of respondents aged 65 and older. These active walkers were represented uniformly across the rural to urban continuum. Moreover, for those who reported walking for any purpose, 50% of women and 40% of men reported walking 30 minutes or more on a typical walk. or distance was a more salient barrier to walking. For those living in lower density suburban and suburban areas, time or distance were more significant barriers to walking. For rural residents, lack of sidewalks was identified as a more salient barrier to walking, when compared to residents in more densely populated areas. Other barriers that ranked in the top-five included too much traffic, lack of personal security, and difficulty crossing streets. Exercise was a leading reason for walking among women, younger (i.e., under 18) and older populations (i.e., 65 and over), and urban, lower density suburban and rural residents. Enjoyment of the outdoors was the second leading reason for walking overall and in particular, was most important for residents ages and and those living in lowdensity suburban and urban environments. Dog walking ranked third among all of the reasons for walking with 52% of young people and 40% of women rating it highly. Weather was a major barrier to walking with about 50% of respondents ranking it highly. For those under the age of 18, too much traffic and lack of sidewalks ranked as important barriers to walking. For those ages 50-64, time 31
32 Lessons Learned and Recommendations The Walk and Wheel initiative funded ten local governments along the Front Range in Colorado to work toward increasing walking and bicycling in their communities. The grants primarily supported non-public health agencies (e.g., planning, public works, transportation, parks and recreation departments) with the exception of Weld County, where the grantee was a county health department. To achieve the goals of the program, the grantees carried out a range of activities primarily involving education and encouragement, planning and policy change, and built environment change. This focus on transportation policy, planning, and the built environment is an interesting departure from other health initiatives attempting to advance walking and bicycling at the community level without a focus on cross-sector policy change. All ten grantees said that multi-sectoral partnerships were essential to carrying out successful projects, and no grantees worked in isolation. Partnerships included stakeholders ranging from business groups to local government departments, and were mainly centered on departments of planning, public works, and parks and recreation. The strength of this cohort of grantees lies in the engagement of decision makers and program managers who have the professional training to develop these partnerships, as well as to identify, design, implement, and manage policies and related environmental changes that support active living. By the numbers, the Walk and Wheel initiative led to three new bicycle master plans, one bicycle education and safety plan, and six bicycle infrastructure or multimodal design studies. The grants also prompted eight of the ten sites to adopt Healthy Eating Active Living campaign resolutions that indicate local governments broader commitment to joining LiveWell Colorado s initiative. With respect to reach, all ten communities organized Walk and Wheel-sponsored events and these events reached at least 20,000 participants. Events primarily focused on bicycling, and they typically reached bicycle enthusiasts who are physically active. Such events included Bike to Work Day, group bike rides, youthfocused bike rodeos, infrastructure demonstration projects, and community engagement meetings. The Walk and Wheel grant program enabled communities to invest in many of the inputs that support bicyclefriendly transportation systems. To gauge the significance of these investments in inputs we compared Walk and Wheel grantees to national peers using eight of the indicators that we developed for the impact evaluation. 3 We selected 3 The eight benchmark/evaluation index indicators included: adopted bicycle or pedestrian plan(s); a complete streets policy; bicycle and/or pedestrian education program(s) for youth; bike to work day program; open streets program; city-sponsored group bike ride(s); formal bicycle and/or pedestrian advisory committee; formally recognized bicycle and/or pedestrian advocacy organization; miles of bicycle infrastructure per square mile. 32
33 WALK AND WHEEL FINAL EVALUATION REPORT these eight indicators because they aligned with national benchmarks, whereas other indicators were too specific to Walk and Wheel to compare nationally. Based on the simulation using these eight indicators, Table 4 illustrates how Walk and Wheel communities compare to national peers before and after the Kaiser Permanente investment (Table 4). When the program began, only Fort Collins was in the top ten of the 52 cities. After Walk and Wheel, the top-ten cities also included Greeley, Englewood, and Colorado Springs. In addition, Pueblo moved into the top 20. In the following sections, we present findings for each of the core areas of the cross-site evaluation, and discuss both the lessons learned and recommendations for future programs. 33
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