Congestion Management Process Plan Draft 2018 Minor Update (updated LOS Tables)

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2 Okaloosa-Walton Transportation Planning Organization (TPO) Congestion Management Process Plan Draft 2018 Minor Update (updated LOS Tables) This report was financed in part by the U.S. Department of Transportation, Federal Highway Administration, and the Florida Department of Transportation. The contents of this report do not necessarily reflect the official views or policies of the U.S. Department of Transportation.

3 TABLE OF CONTENTS 1. Introduction... 6 Components of the 2016 CMP Update... 6 CMPP Study Area CMPP Goals and Objectives Objectives and Congestion Mitigation Strategies Implementation of Transportation System Management and Operation (TSMO) Strategies Transportation Networks Roadway Network Transit Network Paratransit Network Reducing Travel Demand Bicycle and Pedestrian Network...20 Intelligent Transportation Systems (ITS) Freight Network Performance Measures Level of Service (LOS) Performance Measures LOS Analysis Methodology Performance Measures for Congestion Mitigation Strategies Performance Measure Assessment Level of Service Analysis Safety Analysis Congestion Analysis Corridor Management Planning and Planning for Constrained Facilities PAGE 1

4 Corridor Management Planning Data Collection Needs and Sources LOS Table Traffic Volume Data Crash Data ITS and Operations Data CMPP Coordination and Integration LRTP Integration TIP Integration Transportation System Management, Operations, and ITS Linkage Public Participation Plan (PPP) Integration CMPP Implementation Monitoring and Tracking Implementation Schedule Implementation Responsibilities Role of Decision Makers and Elected Officials Conclusion Appendix A: Okaloosa County Level of Service Tables (2015)... A Appendix B: Walton County Level of Service Tables (2015)... B Appendix C: Resolution O-W 18-XX... C Appendix D: Review Comments... D PAGE 2

5 LIST OF FIGURES Figure 1.1: 8-Step CMPP Development Process... 7 Figure 1.2 MPO and Urbanized Area Boundaries... 9 Figure 3.1 Okaloosa and Walton County Road Miles Figure 3.2. CMPP Roadway Networks Figure 3.3. The WAVE Route Map Figure 3.4. Park and Ride Locations, Figure 3.5. Bicycle and Pedestrian Facilities...22 Figure 5.1. Crashes Per 1,000 AADT, Figure 5.2. Traffic Fatalities Per 100,000 Population Figure 5.3. Travel Time to Work, Okaloosa/Walton Figure 5.5. Annual Average Daily Traffic (AADT), Figure 8.1. Public Involvement Objectives LIST OF TABLES Table 2.1. Okaloosa-Walton TPO 2040 Long Range Transportation Goals Table 2.2. Congestion Management Process Objectives and Mitigation Strategies Table 3.1 New Okaloosa County Roadway Segments (2014) Table 3.2 New Walton County Roadway Segments (2014) Table 3.3. Highways of Commerce Table Truck Volumes (AADT) Table 4.1. Congestion Mitigation Objectives, Strategies, and Performance Measures Table 5.1. Okaloosa County Failing Segments, Table 5.2. Walton County Failing Segments, Table 5.3. Traffic and Pedestrian Fatalities, Table 5.4. Means of Transportation to Work, Okaloosa/Walton Metropolitan Area Table 5.5. Means of Transportation, Pensacola Metropolitan Area Table 5.6. Travel Time to Work: Okaloosa/Walton PAGE 3

6 Table 8.1. Technical Coordinating Committee Members Table 8.2. Okaloosa-Walton TPO Elected Officials Representation PAGE 4

7 GLOSSARY AADT BPAC CAC CCTV CFR CMP CMPP DMS FDOT FHWA ITS LRTP MAP-21 NWFRPM PIP RWIS TCC TDM TIP TMA TPO TSMO VDS VMT WFRPC Annual Average Daily Traffic Bicycle and Pedestrian Advisory Council Citizens Advisory Committee Closed Circuit Television Code of Federal Regulations Corridor Management Plan Congestion Management Process Plan Dynamic Message Signs Florida Department of Transportation Federal Highway Administration Intelligent Transportation Systems Long Range Transportation Plan Moving Ahead for Progress in the 21st Century Northwest Florida Regional Planning Model Public Involvement Plan Road Weather Information Systems Technical Coordinating Committee Transportation Demand Management Transportation Improvement Program Transportation Management Area Transportation Planning Organization Transportation System Management and Operation Vehicle Detector Stations Vehicle Miles Traveled West Florida Regional Planning Council PAGE 5

8 1. INTRODUCTION The congestion management process plan (CMPP) is a management tool used to improve traffic operations and safety. The management process monitors congestion levels and implements strategies and operational improvements to reduce travel demand. Congestion of any given roadway network can be closely linked to demand. As the demand increases, the vehicle volume begins to fulfill the capacity of the road. Congestion can also be perceived on how well the roadway facility is meeting the needs of the users. The CMPP is a state and federally mandated document designed to support the transportation planning process. By collecting and mapping safety information annually, the next major update to the CMPP will be able to formulate safety recommendations for inclusion in the planning process. Code of Federal Regulations (CFR) requires any area with a population over 200,000 designated as a Transportation Management Area (TMA) to address congestion through a process that provides for safe and effective integrated management and operations of multimodal transportation system based on a cooperatively developed and implemented metropolitan wide strategy, of new and existing transportation facilities eligible for funding under title 23 U.S.C. and title 49 U.S.C. Chapter 53 through the use of travel demand reduction and operation management strategies. Although the Okaloosa Walton Transportation Planning Organization is not a designated TMA, Florida Department of Transportation (FDOT) policy extends this stipulation to all metropolitan planning organizations in an effort to emphasize mobility management. Moving ahead for Progress in the 21st Century (MAP 21) is the federal transportation law that will provide federal funding for highway and transit improvements as of October 1, The goal of MAP 21 is to achieve a significant reduction in congestion on the National Highway System. COMPONENTS OF THE 2016 CMP UPDATE The FHWA released a handbook providing guidance for the formulation of a CMPP in 2011 titled Congestion Management Process: A Guidebook. Featured in this guidebook is an eight-step process for the development of a successful CMPP. These steps are displayed in Figure 1.1. PAGE 6

9 Figure 1.1: 8-Step CMPP Development Process Develop Goals and Objectives It may not be feasible or desirable to try to eliminate all congestion; therefore it is important to define objectives for congestion management that achieve the desired outcome. Program and Implement Strategies This action defines both the geographic scope and system elements that will be analyzed in the CMPP. Define CMPP Networks This action involves developing PMs that will be used to measure congestion on both a regional and local scale. Develop Mulitmodal Performance Measures After PMs are defined, data should be collected and analyzed to determine system performance. Data Collection and System Performance This action involves identification of existing and future congestions, and causes of unacceptable congestion. Analyze Congestion Problems and Needs This action involves both identifying and assessing potential strategies to mitigate congestion. Identify, Assess, and Implement Strategies This action involves including strategies in the LRTP, determining funding sources, prioritizing strategies, allocating funding in the TIP, and ultimately, implementing these strategies. 8. Evaluate Strategy Effectiveness The strategies must be regularly monitored to gauge effectiveness. PAGE 7

10 CMPP STUDY AREA The Okaloosa Walton Transportation Planning Organization (TPO) is bounded within the urbanized areas of Okaloosa and Walton Counties in the Northwest panhandle. The function of the TPO is to coordinate transportation planning among the local governments and the Florida Department of Transportation. The Okaloosa Walton CMPP Report is developed for and implemented within portions of extreme southern Walton County, and southern and central sections of Okaloosa County, including Destin, Fort Walton Beach, Niceville, and Crestview. Error! Unknown switch argument. identifies the boundaries that are used in the CMPP. Significant geographic features include the Choctawhatchee River, Choctawhatchee Bay, Santa Rosa Sound, and numerous smaller creeks and bayous. A major land use feature in this region is Eglin Air Force Base as well as Hurlburt and Duke Fields. Large portions of land in the Okaloosa Walton Urbanized Area are devoted to military activity. The location of these military installations has had a significant impact on the development of the region and continues to significantly impact the transportation system not only in southern portions of the study area, but also in central Okaloosa County. PAGE 8

11 Figure 1.2 MPO and Urbanized Area Boundaries Congestion Management Process Plan PAGE 9

12 Congestion Management Process Plan 2. CMPP GOALS AND OBJECTIVES The first step in the CMPP process is the development of goals and objectives for congestion management. Defining congestion management objectives are also required as part of the CMP per Federal regulation 23 CFR (c) 2. In the 2016 CMPP update, CMPP objectives were drawn from Okaloosa-Walton TPO s 2040 LRTP goals and objectives. The context of the CMPP objectives were set by the Long Range Transportation Plan (LRTP). The vision and the goals of the 2040 LRTP will be used as guidance for the TPO s regional mobility. The vision and goals of the LRTP are established within the steering committee session. The steering committee is composed of representatives from the Florida Department of Transportation (FDOT), local government representatives, citizens, and stakeholders. Before adoption, the vision statement and goals were presented to the general public for review, comment, and recommendations. Goals are broad statements of intent, whereas objectives are specific in context in order to accomplish the goal. The goals established in the 2040 LRTP are listed below in Table 2.1. The CMPP objectives are reflective of those established in the LRTP which are relative to the performance of the transportation system. The CMPP objectives define the short term management of congestion and low cost implementation strategies. Goal A Goal B Goal C Table 2.1. Okaloosa-Walton TPO 2040 Long Range Transportation Goals 2040 LRTP Goals A transportation system that is safe and secure. A transportation system that is user-friendly and maximizes mobility. A transportation system that provides for the effective movement of goods and people. Goal D Goal E Goal F Goal G A transportation system that supports a high quality of life respectful of the environment, public health and vulnerable users. A transportation system that is multimodal, integrated and connected. A transportation system that is maintained and operated efficiently. A transportation system that includes consistent, continuing, cooperative and comprehensive planning processes. PAGE 10

13 Congestion Management Process Plan OBJECTIVES AND CONGESTION MITIGATION STRATEGIES As outlined in the Federal Highway Administration s Congestion Management Process: A Guidebook, ideal congestion management objectives are SMART: Specific, Measurable, Agreed, Realistic, and Time-Bound. Objectives should be specific and measurable, regional in nature, and focused on a specific aspect of congestion. Objectives generally lead directly to a performance measure that can be used to assess whether or not the objective has subsequently been achieved. The CMPP Objectives are shown below in Table 2.2, along with congestion mitigation strategies that are recommended to achieve the objectives of this CMPP update Table 2.2. Congestion Management Process Objectives and Mitigation Strategies Objectives Reduce travel demand Promote alternate modes of transportation Improve functionality and reliability of the transportation system Congestion Mitigation Strategies - Decrease vehicle miles traveled (VMT) - Implement Transportation Demand Management Strategies - Encourage carpooling and use of the Commuter Assistance Program - Encourage other modes of transportation - Improve access to transit by supporting transit expansion - Increase bicycle and pedestrian connectivity by expanding bicycle and pedestrian facilities - Improve traffic flow - Implement Transportation System Management and Operation Strategies 4. Enhance the safety for motorized and non-motorized users - Reduce the rate of accidents - Seek out high-crash hot spots - Separate travel modes to reduce conflict points 5. Preserve the existing transportation system - Monitor traffic conditions in real time - Prioritize capacity improvements for roadways with a deficient LOS / volume to capacity ratio - Prioritize low-cost, operational improvements that will reduce congestion PAGE 11

14 Congestion Management Process Plan The purpose of the CMPP is to meet the goals and objectives laid out in Tables 2.1 and 2.2 by working to reduce travel demand and improve the security, safety, and reliability of the transportation system. Specific performance measures that will be used to evaluate how well this is being accomplished are found in Section 4. Two of the concepts listed above in Table 2.2 are more complex, reduce travel demand and transportation system management and operations strategies, and therefore will be discussed more in-depth below. IMPLEMENTATION OF TRANSPORTATION SYSTEM MANAGEMENT AND OPERATION (TSMO) STRATEGIES TSMO strategies are used to reduce congestion, improve mobility, and increase safety. As defined by the Federal High Administration, TSMOs are an integrated program to optimize the performance of existing multimodal infrastructure through [the] implementation of systems, services, and projects to preserve capacity and improve security, safety, and reliability of our transportation system. Recommended TSMO actions and strategies by FDOT in the Florida Transportation Systems Management and Operations Strategic Plan (December 2013) are as follows: Ramp signals Advanced Traffic Management Systems Severe Incident Response Vehicles Managed Lanes Incident Management Rapid Incident Scene Clearance Traveler Information Arterial Management Work Zone Traffic Management Weather Information Variable Speed Limits PAGE 12

15 Congestion Management Process Plan 3. TRANSPORTATION NETWORKS Transportation planning encompasses more than planning for roadways and the movement of motor vehicles, and includes other transportation modes such as public transportation, bicycles, pedestrians, and freight are also parts of the overall transportation network. Therefore, the following transportation networks are included within this section of the CMPP report: Roadway Networks Transit Systems Travel Demand Bicycle and Pedestrian Networks Freight Networks ROADWAY NETWORK Roadway networks are classified by the Federal Highway Administration (FHWA) Functional Classification System. The FHWA functional classification system defines streets and highways based on the types of service they are intended to provide. The classifications can be applied in planning highway system development, determining jurisdictional responsibility for systems, and for the financial planning of roadways. There are four types of roadway systems classified by the FHWA: 1) Freeways and Tolls; 2) Arterials; 3) Collectors; and 4) Local Roads. Local road networks are not analyzed through the CMPP process, and therefore are not included in this report. The regional roadway corridors serving the Okaloosa-Walton Urbanized Area include: Interstate 10, US 98, US 331, SR 85, SR 20, and SR 85. Other major urban arterial corridors include: SR 189 (Beal Parkway/Lewis Turner Boulevard), SR 123, and SR 397 (John Sims Parkway). The total roadway mileage for the CMPP is shown in Figure 3.2. PAGE 13

16 Congestion Management Process Plan NEW ROADWAY SEGMENTS Based on a review of the FDOT District 3 updated Roadway Classification maps for Okaloosa and Walton Counties, the several roadway segments have been added to the CMPP network. The new roadway segments for Okaloosa County are displayed in Table 3.1 and the new segments for Walton County are presented in Table 3.2. Table 3.1 New Okaloosa County Roadway Segments (2014) New Okaloosa County Roadway Segments (2014) Functional FDOT Count Roadway Segment 2014 Classification Station # Azalea Drive US 98 to Benning Drive Major Collector Legion Drive Benning Drive to Main Street Major Collector * Airport Drive Main Street to Commons Drive Major Collector Airport Drive Commons Drive to US 98 Major Collector Commons Drive Airport Road to SR 293 Major Collector * Two Tree Road US 98 to Commons Road Major Collector Mid-Bay Bridge Road (SR Southern Approach to SR 20 Minor Arterial ) Mid-Bay Bridge Road (SR & SR 20 to SR 285 Minor Arterial 293) 1521* College Boulevard (CR 190) SR 85 to SR 85 (Gov't Avenue) Major Collector & 1500 Galiver Cutoff (SR 189) US 90 to SR 4 Minor Arterial , 5901, Old River Road (CR 397) US 90 to SR 4 Minor Collector 5902 Steelmill Creek Road (CR 2) SR 189 to SR 85 Minor Collector * New Count Station for County Road 393 US 90 to CR 2 Major Collector County Road 393 CR 2 to SR 85 Major Collector * Steelmill Creek Road (CR 2) Third Street to CR 393 Minor Collector 57-8 Steelmill Creek Road (CR 2) CR 393 to County Line Minor Collector PAGE 14

17 Congestion Management Process Plan Table 3.2 New Walton County Roadway Segments (2014) Roadway New Walton County Roadway Segments (2014) Segment Functional Classification CR 2 County Line to US 331 Minor Collector FDOT Count Station # CR 2 US 331 to SR 83 Minor Collector & 238 CR 2 SR 83 to County Line Minor Collector CR 147 CR 2 to SR 85 Minor Collector CR 147 SR 85 to US 331 Minor Collector CR 1087 US 90 to CR 2 Minor Collector CR 2A CR 1087 to US 331 Minor Collector CR 1084 US 331 to SR 83 Minor Collector CR 192 US 331 to SR 83 Minor Collector Walton Road US 332 to SR 83 Minor Collector Bob Sikes Road (CR 280) US 221 to Nelson Road Minor Collector Rock Hill Road US 331 to SR 81 Minor Collector , 5903, 5907 Chat Holley Road CR 393 to US 331 Major Collector PAGE 15

18 Congestion Management Process Plan ROADWAY NETWORK AND MILEAGE The total roadway mileage for the CMPP is shown in Figure 3.1 Walton County has approximately 5,000 more roadway miles than Okaloosa. The roadway network is displayed in Figure 3.2. Figure 3.1 Okaloosa and Walton County Road Miles Okaloosa County: County Road Miles, 198,436 Walton County: State Road Miles, 203,577 Source: Okaloosa-Walton CMP Network, 2013 Okaloosa County: State Road Miles, 33,839 Walton County: County Road Miles, 42,345 PAGE 16

19 Figure 3.2. CMPP Roadway Networks Congestion Management Process Plan PAGE 17

20 Congestion Management Process Plan TRANSIT NETWORK Okaloosa County Transit began offering fixed route bus service in June This new transit service, called the WAVE, serviced Fort Walton Beach and Crestview. As of 2016, the WAVE, also called the Emerald Coast (EC) Rider, has expanded to ten routes to also serve Okaloosa Island, Destin and South Walton, and offers express routes. The regular fare price is $1.50, and the fare price for seniors is $0.75. Monthly passes are offered at a regular fare of $30, or a senior fare of $15. Figure 3.3 displays the current route map. PARATRANSIT NETWORK The Emerald Coast rider offers paratransit (door-to-door) service to qualifying Okaloosa County residents. Reservations are required, and the cost of the trip is determined based on the distance traveled. Figure 3.3. The WAVE Route Map The Tri-County Community Council coordinates the Source: EC Rider Ride Guide, 2015 paratransit services for Walton County, under the direction of the West Florida Regional Planning Council (WFRPC). PAGE 18

21 Congestion Management Process Plan REDUCING TRAVEL DEMAND A major way to reduce congestion is to reduce overall demand for the system. Strategies to reduce travel demand include encouraging telecommuting, supporting and encouraging land use decisions which reduce vehicle miles traveled, encouraging flextime, carpooling, use of transit, or by encouraging active transportation modes such as biking or walking RIDE-ON PROGRAM One effort the TPO has been working to reduce travel demand is through a program called ride-on. The ride-on Program is funded by the Florida Department of Transportation (FDOT) and staffed by the West Florida Regional Planning Council. The program offers employer-based incentives to help in reducing single-occupant vehicle travel to work sites. This is executed through a Commuter Assistance Program which coordinates users on a computer database to form carpools and vanpools PARK AND RIDE LOTS Park and Ride lots are also located throughout the TPO, as designated by the FDOT. Park and Ride facilities serve as collection areas for people transferring to higher occupancy vehicles, many of which are used by vanpoolers and carpoolers. As of February 2016, there is one Park and Ride location in Okaloosa County, and one in Walton County. The Walton County lot is equipped with 27 parking spaces, and is located on the north side of State 20, approximately 0.2 miles west of the State Road 20/US 331 Junction. The Okaloosa County Lot has 15 parking spots, and is located at the southeast corner of the US 90/CR 189 intersection. Figure 3.4 displays the location of the FDOT designated Park and Ride Lots. PAGE 19

22 Congestion Management Process Plan BICYCLE AND PEDESTRIAN NETWORK For the purposes of the CMPP, the bicycle and pedestrian networks are the same as the CMPP network. The bicycle and pedestrian networks contain both on-road and off-road facilities. The on-road bicycle network is comprised of bicycle lanes and paved shoulders. Bicycle lanes are bicycle facilities typically at least four feet wide with designated markings on the road. Paved shoulders are a part of the bicycle network as they serve the purpose of providing a place of travel for bicycles as well as a place of refuge for vehicles with mechanical problems. Generally, paved shoulders are known as undesignated bicycle facilities along suburban and rural roadways. Pedestrians are typically prohibited from walking on highways, limited access facilities, HOV and toll facilities, and. Therefore, the pedestrian network is limited to sidewalks, other pedestrian routes, and trails. Figure 3.5 depicts existing bicycle and pedestrian facilities in Okaloosa and Walton counties. PAGE 20

23 Figure 3.4. Park and Ride Locations, 2016 Congestion Management Process Plan PAGE 21

24 Figure 3.5. Bicycle and Pedestrian Facilities Congestion Management Process Plan PAGE 22

25 Congestion Management Process Plan INTELLIGENT TRANSPORTATION SYSTEMS (ITS) Intelligent Transportation Systems (ITS) refers to the function of using technology and communications to make travel smarter, faster, safer, and more convenient. The list below provides examples of ways ITS helps the traveling public: ITS traffic control system reduce time travelers spend stopped at red lights or waiting on freeways when an accident occurs. Automatic toll collection reduces congestion and pollution by moving vehicles more quickly through toll booths. Travel information systems provide current, multi-modal information on travel conditions facilitating smarter traveling choices. In-vehicle systems provide maps, voice directions, and improve safety by providing notifications of emergency services or a when a serious accident is in the area. ITS in transit systems help transit agencies operate more efficiently and make the use of transit more attractive. ITS in commercial vehicles help with paperwork for the vehicle operators associated with moving goods, and will also help public agencies improve safety by inspecting the vehicles that need it most. The Okaloosa-Walton TPO, in partnership with the Florida-Alabama and Bay County TPOs, completed a Regional ITS Plan in The Regional ITS plan identified and evaluated the existing ITS networks, evaluated future ITS needs, and determined additional staffing needs for operation and maintenance of future ITS improvements. This plan was adopted in September of 2010 by each of the three Northwest Florida TPOs. FREIGHT NETWORK The freight network is composed of the CMPP network. The movement of goods is primarily by truck even though rail, water, and air cargo are available. Some freight vehicle movement is restricted on some roadways, depending on the vehicle size and type. Table 3.3 displays the highway that support commerce in Okaloosa and Walton counties. Figure 3.4 illustrates the truck volumes for 2015 within Okaloosa and Walton counties. The data was derived from FDOT s 2015 truck volume average annual daily traffic counts. PAGE 23

26 Congestion Management Process Plan Table 3.3. Highways of Commerce Highways of Commerce County Highway of Commerce From To I-10 Santa Rosa County Line Walton County Line US 90/SR 10 SR 85 Walton County Line US 98/SR 30 Santa Rosa County Line Walton County Line Walton Okaloosa SR 123 SR 85/189 SR 85 SR 85/189 US 98 SR 123 SR 85 SR 20 SR 123 SR 85 SR 123 I-10 SR 85 I-10 Walton County Line SR 20 SR 85 Walton County Line Adams Pkwy/Antioch Rd SR85 US 90 I-10 Okaloosa County Line Holmes County Line US 331/SR 83 US 98 Alabama Line US 98/SR 30 Okaloosa County Line Bay County Line SR 20 Okaloosa County Line Washington County Line US 90/SR 10 Okaloosa County Line US 331/SR 83 SR 85 Okaloosa County Line Alabama Line Source: Okaloosa-Walton TPO Regional Network Freight Plan, 2010 PAGE 24

27 Table Truck Volumes (AADT) D R AF T Congestion Management Process Plan PAGE 25

28 Congestion Management Process Plan 4. PERFORMANCE MEASURES Performance measures provide a quantifiable method for determining the performance of a transportation system and to analyze the effectiveness of congestion management strategies. Essentially, performance measures determine what degree the CMPP is achieving its objectives. The development of performance measures addresses the following: Identifies congested areas Evaluates the effectiveness of mitigation strategies Monitors the effectiveness and efficiency of the transportation system Identifies, evaluates, tracks, and communicates the degree to which the transportation system satisfies its requirements. LEVEL OF SERVICE (LOS) PERFORMANCE MEASURES The Level of Service (LOS) performance was used to determine the level of congestion in previous CMPPs for Okaloosa and Walton counties, and therefore was used for this update as well. A LOS analysis is a quantitative examination of the quality of service provided by the transportation system. The LOS tables are based on the generalized tables within the 2013 FDOT Quality/Level of Service Handbook. Maximum threshold levels are determined by the state and local governments based on the analysis of a segment s functional classification and facility type. The Okaloosa and Walton County Roadway and Multimodal LOS Tables are located in Appendices A and B. LOS ANALYSIS METHODOLOGY LOS is determined by using the annual average daily traffic (AADT) counts for each CMPP road segment from FDOT and then cross-referencing them by roadway type suing the FDOT s Generalized LOS tables. AADT measures the amount of daily and peak hour traffic on regionally significant state and local roadways. The LOS is assessed by the amount of traffic on a roadway type. Bicycle, pedestrian, and other bus mode level of service also utilize the traffic volume, as well as the percentage of either a paved shoulder, bicycle lane coverage, or sidewalk coverage to determine the level of service. The steps for determining CMPP network roadway congestion levels are outlined as follows: 1) Determine the geographic area type (Urbanized Area, Transitioning Area, or Rural Area) is located. Retrieve the appropriate table. PAGE 26

29 Congestion Management Process Plan 2) Determine the roadway type: State two-way arterial, freeway, or non-state roadway. Reference the corresponding section of the table. 3) For arterial roadways, determine the posted speed limit on the segment of roadway and the appropriate class designation (Class I, II, etc.) on the table. 4) Determine the number of through lanes on the segment, whether it is divided or undivided, and whether it has any adjustments to be made based on the presence or lack of a median and turn lanes. Find the appropriate row under the proper class designation. 5) Look up the AADT count two-way traffic volume for the roadway segment. Note: if more than one count station exists on the segment, the median county should be used to represent the average conditions. 6) Using the proper table, the appropriate class designation, and the correct row, determine the LOS classification in which the AADT falls. PERFORMANCE MEASURES FOR CONGESTION MITIGATION STRATEGIES Several key modifications were made affection the metropolitan planning process when MAP- 21 replaced SAFETEA-LU (Safe Accountable Flexible Efficient Transportation Equity Act: A Legacy for Users). MAP-21 focuses on performance-based planning. Therefore, MPOs are required to establish and use a performance-based approach in transportation decision-making and the development of transportation plans. In accordance with MAP-21, specific and actionable performance measures were created for the CMPP major update. The performance measures are shown in Table 4.1. PAGE 27

30 Congestion Management Process Plan Table 4.1. Congestion Mitigation Objectives, Strategies, and Performance Measures # Objectives 1A 1B 2 3 Reduce Number of Automobile Trips Reduce Length of Automobile Trips Promote Alternative Modes of Transportation Improve Functionality and Reliability of Transportation System Congestion Mitigation Strategies Decrease vehicle miles traveled (VMT) Implement Transportation Demand Management Strategies Encourage carpooling and the use of Commuter Assistance Program Encourage other modes of transportation Improve access to transit by supporting transit expansion Increase bicycle and pedestrian connectivity by expanding bicycle and pedestrian facilities Increase participation in rideon and similar programs Performance Measures Track VMT and public transportation miles of travel Monitor travel times to work Continue to promote public awareness of CAP Promote transit services Produce electronic bicycle and pedestrian route maps for the public by 12/2016 and 1,000 printed maps by 12/2017 Encourage telecommuting and flexible work hours programs Reduce travel time to work Monitor Transit Usage Monitor means of transportation to work Prioritize bike lane and sidewalk projects that create connectivity between existing multi-modal facilities Track ride-on participation Improve traffic flow Implement Transportation System Management and Operation Strategies Construct 1 Park-and-Ride lot annually Increase ITS capabilities to provide greater access to system information Re-time 60 traffic signals annually Monitor congestion measures annually to discover congestion problems PAGE 28

31 Congestion Management Process Plan # Objectives 4 5 Enhance Safety for Motorized and Non- Motorized Users Preserve the Existing Transportation System Congestion Mitigation Strategies Reduce the rate of accidents Seek out high-crash "hot spots: Separate travel modes to reduce conflict points Monitor traffic conditions in real time Prioritize capacity improvements for roadways with a deficient LOS/volume to capacity ratio Prioritize low-cost, operational improvements that will reduce congestion Performance Measures Track and bring awareness to the number of traffic and pedestrian fatalities Implement access management strategies to reduce conflict points Map and review crash locations for highcrash hot spots annually as a part of the CMP Provide $350,000 of funding annual for separated bicycle and pedestrian facilities Seek capital and operating funding for traffic monitoring, management, and control facilities and programs Invest $150,000 in operational roadway improvements (including intersection improvements, removal of bottlenecks, and addition of turn lanes) each fiscal year Update LOS tables annually and prioritize projects that have a failing LOS PAGE 29

32 Congestion Management Process Plan 5. PERFORMANCE MEASURE ASSESSMENT LEVEL OF SERVICE ANALYSIS A level of service analysis was completed on all major Okaloosa and Walton County state and county roadways in the summer of 2016 using 2015 traffic count data. This analysis reported the annual average daily traffic peak hour and peak direction traffic volume and level of service. The analysis also include the percentage of the maximum service volume that each facility was operating at the AADT level. The full analysis is located in Appendices A and B. Table 5.1 and Table 5.2 display the Okaloosa and Walton County roadway segments with a failing LOS in 2015: Road SR 20 SR 30 SR 30 SR 30 Table 5.1. Okaloosa County Failing Segments, 2015 Okaloosa County Failing Segments, 2015 Segment SR 285/Partin Drive to Rocky Bayou Bridge Santa Rosa County Line to Hurlburt Field Gate Eastern Leg SR85/Florida Place to Military Boundary/Beach Park Entrance on Okaloosa East Pass Bridge (west end) to Gulf Shore Drive SR 30 Gulf Shore Drive to Emerald Coast Parkway/Old US 98 SR 30 Emerald Coast Parkway/Old US 98 to Matthew Boulevard SR 85 Antioch Road to I-10 (SR 8) SR 85 I-10 (SR-8) to US 90/SR 10 SR 189 SR 393/Mary Esther Boulevard/Oak Street to SR 188/Racetrack Road CR 4 CR 20 Antioch Road to SR 85/S Ferdon Boulevard Hill Avenue/Hollywood Boulevard to Lovejoy Road Table 5.2. Walton County Failing Segments, 2015 Walton County Failing Segments, 2015 Road Segment SR 30 Okaloosa County line to Old US 98/SR 30 SR 30 Mack Bayou Road to CR 30A (west end) PAGE 30

33 Congestion Management Process Plan SAFETY ANALYSIS CRASH ANALYSIS The crash analysis was conducted using data from the Florida Signal Four Analytics database. The Signal Four system was developed by the GeoPlan Center at the University of Florida, and was funded by the State of Florida through the Traffic Records Coordinating Committee (TRCC). Crash data is collected electronically by Florida Highway Patrol (FHP) officers at crash sites throughout the state, and is transmitted nightly to the GeoPlan Center and loaded into the database. The frequency of crashes was determined by calculating crashes per 1,000 AADT for each CMPP road segment. Figure 5.1 displays the crash analysis results. PAGE 31

34 Figure 5.1. Crashes Per 1,000 AADT, D R AF T Congestion Management Process Plan PAGE 32

35 Congestion Management Process Plan TRAFFIC FATALITIES The National Highway Traffic Safety Administration (NHTSA) publishes traffic fatalities by county annually. Figure 5.2 displays the traffic fatalities per 100,000 population for Okaloosa, Walton, and Santa Rosa counties for 2011 through Santa Rosa County was included for comparison purposes. Walton County experienced the highest traffic fatalities of the three counties over the five years, but has generally been on a downward trend. Okaloosa County had the lowest fatalities from 2011 to 2013, but has since been on an upward trend. Fatalities Per 100,000 Population Figure 5.2. Traffic Fatalities Per 100,000 Population Okaloosa Walton Santa Rosa Okaloosa Walton Santa Rosa Source: NHTSA Traffic Safety Facts for Florida: (All Crashes) PAGE 33

36 Congestion Management Process Plan PEDESTRIAN SAFETY An advocacy group named Smart Growth America promotes smart growth solutions to improve walkability across the nation. The group published a Dangerous by Design report in 2014 providing facts about traffic and pedestrian fatalities, including an analysis of pedestrian deaths based on posted speed limits. Table 5.3 displays the results of the analysis for Okaloosa, Walton, Santa Rosa counties from Okaloosa County experienced the highest percentage of pedestrian fatalities, with 16.4%. Walton experienced approximately half, with 8% pedestrian deaths. However, Walton County had the highest annual pedestrian deaths per 100,000 from , with 325. Between 2% and 6% of the pedestrian deaths occurred at speeds less than 20 MPH. The percentage of deaths increased to between approximately 6% and 13.2% when the speed limit is less than 30 MPH. The number of deaths significantly increases (60% - 88%) when the speed limit is 40 MPH or greater. Finally, nearly an average of 80% of the pedestrian deaths occurred on arterials in the three counties. These trends tie into land use and roadway design, and identify the correlation between higherspeed facilities which are designed primarily for the automobile, and pedestrian deaths. County Traffic Fatalities Table 5.3. Traffic and Pedestrian Fatalities, Traffic and Pedestrian Fatalities, Pedestrian Fatalities % Pedestr -ian Annual Ped. Deaths Per 100,000 > 20 MPH % Ped. Deaths by Speed Limit > 30 MPH < 40 MPH % Ped. Deaths on Arterials Okaloosa % % 13.2% 60.5% 86.8% Walton % % 5.9% 88.2% 82.4% Santa Rosa % % 12.5% 81.3% 68.8% Source: Dangerous by Design 2014, Smart Growth America PAGE 34

37 Congestion Management Process Plan MEANS OF TRANSPORTATION TO WORK The American Community Survey (ACS) reports how workers sixteen years of age and older get to work. The respondents indicate whether they take a car, truck or van, drove alone or carpooled, used public transportation, a taxicab, a motorcycle, rode a bicycle, walked, worked from home, or by other means. Table 5.4 and Table 5.5 display the results from the ACS for the Okaloosa/Walton metropolitan area (the full name is the Crestview-Ft.Walton Beach-Destin Metro Area), and the Pensacola metropolitan area (the full name is the Pensacola- Ferry Pass-Brent Metro Area) for comparison. The figures for 2011 through 2014 are estimates based on the official 2010 counts. Table 5.4 shows that more than 90% of the respondents drive a car, truck or van to work in 2014, less than 10% of whom carpooled. Slightly more than 3% of the respondents worked from home, and any other form of travel was used by approximately 5% of the workers. However, there has been a significant increase of nearly 60% in public transportation usage from 2010 to Carpooling dropped approximately 7% of those who drove a car, truck, or van. The use of taxicabs increased 33% over the five years, and those taking other transportation increased 223%. Comparatively, Table 5.5 displays the means of transportation data for the neighboring Pensacola Metropolitan Area (Pensacola-Ferry Pass-Brent Metro Area). Similar to the Okaloosa/Walton Metro Area, slightly less than 90% of the workers travel by car, truck, or van, with nearly 90% of which driving alone and 10% carpooling. The Pensacola area did not have as much of an increase in car, truck or van travel to work over the five year period (3%), as Okaloosa/Walton did (25%). Furthermore, Pensacola experienced a 25% drop in public transportation ridership whereas Okaloosa/Walton increased ridership (59%). Workers walking to work dropped by 55% in the Pensacola area whereas walkers in Okaloosa/Walton increased by nearly 20%. PAGE 35

38 Congestion Management Process Plan Table 5.4. Means of Transportation to Work, Okaloosa/Walton Metropolitan Area Means of Transportation to Work, Crestview-Ft. Walton Beach-Destin Metro Area Type % Change Car, Truck, or Van 93% 92% 92% 92% 92% 25% Drove Alone 87% 88% 89% 90% 91% 29% Carpooled 13% 12% 11% 10% 9% -7% Public Transportation 0.4% 0.5% 0.5% 0.6% 0.6% 59% Taxicab 0.1% 0.1% 0.1% 0.1% 0.1% 33% Motorcycle 0.5% 0.5% 0.5% 0.3% 0.3% -26% Bicycle 0.5% 0.5% 0.4% 0.6% 0.4% 4% Walked 1.5% 1.3% 1.3% 1.2% 1.4% 19% Other 1.0% 1.4% 1.5% 2.0% 2.4% 223% Worked from Home 3.5% 3.4% 3.2% 3.2% 3.2% 15% Total 90,114 88,994 88, , ,454 26% Source: U.S. Census Bureau, American Community Survey estimates based on 2010 official counts. Table 5.5. Means of Transportation, Pensacola Metropolitan Area Means of Transportation to Work, Pensacola-Ferry Pass-Brent Metro Area Type % Change Car, Truck, or Van 88.1% 88.1% 88.0% 88.0% 88.7% 3% Drove Alone 87.0% 87.2% 87.9% 88.4% 88.6% 5% Carpooled 13.0% 12.8% 12.1% 11.6% 11.4% -10% Public Transportation 0.6% 0.6% 0.5% 0.6% 0.5% -25% Taxicab 0.0% 0.1% 0.1% 0.1% 0.1% 190% Motorcycle 0.3% 0.4% 0.5% 0.4% 0.4% 29% Bicycle 0.4% 0.3% 0.3% 0.3% 0.3% -5% Walked 3.7% 3.2% 2.9% 2.1% 1.6% -55% Other 0.7% 0.8% 0.9% 0.8% 0.7% 0% Worked from Home 6.2% 6.6% 6.9% 7.7% 7.7% 28% Total 197, , , , ,198 3% Source: U.S. Census Bureau, American Community Survey. Estimates based on 2010 official counts. PAGE 36

39 Congestion Management Process Plan TRAVEL TIME TO WORK Along with travel modes to work, the ACS also reports travel times to work. Table 5.6 and Figure 5.3 display the results for the Okaloosa/Walton metropolitan area and the Pensacola metropolitan area, for comparison. The 2011 to 2014 data are estimates based on the 2006 to 2010 ACS. The margin of error can be up to five percent for the ACS estimates. As displayed in the data, the travel time to work has seen a general increase between 2010 and Travel time of 90 minutes or more increased by nearly 50%. Travel times between 40 and 40 minutes also increased by approximately 42%. The lowest changes in travel times were among the 14 minutes or less categories with an average increase of 16% in the shorter travel times. Table 5.6. Travel Time to Work: Okaloosa/Walton Travel Time to Work: Okaloosa/Walton Metropolitan Area Minutes % Change Less than 5 4.4% 3.9% 3.9% 4.0% 3.8% 10% 5 to 9 14% 14% 13.3% 13.3% 13.4% 19% 10 to 14 17% 16% 16.7% 16.1% 15.8% 17% 15 to 19 15% 15% 14.8% 14.6% 15.0% 27% 20 to 24 14% 14% 13.3% 13.2% 13.7% 27% 25 to 29 6% 6% 5.8% 5.8% 5.6% 19% 30 to 34 13% 14% 14.5% 14.3% 13.9% 37% 35 to 39 3% 3% 2.6% 2.8% 3.0% 38% 40 to 44 3% 3% 3.2% 3.2% 3.2% 43% 45 to 49 6% 7% 7.0% 7.0% 6.9% 41% 60 to 89 4% 3% 3.3% 4.1% 3.9% 30% 90 or more 1% 2% 1.5% 1.6% 1.7% 49% Source: U.S. Census Bureau, American Community Survey. Estimates based on 2010 official counts. PAGE 37

40 Congestion Management Process Plan Figure 5.3. Travel Time to Work, Okaloosa/Walton 20.0% Less than 10 minutes 15.0% 10 to 14 minutes 15 to 19 minutes 20 to 24 minutes 10.0% 25 to 29 minutes 30 to 34 minutes 35 to 44 minutes 5.0% 45 to 59 minutes 60 or more minutes 0.0% Source: U.S. Census Bureau, American Community Survey. Estimates based on 2010 official counts. PAGE 38

41 Congestion Management Process Plan CONGESTION ANALYSIS There are several measures of congestion, such as: Roadway Level of Service o Roadway Level of Service (LOS) is determined by Annual Average Daily Traffic (AADT) compared with the type of roadway improvements and where the road is located. Figure 5.4 displays the AADT for the CMPP network for The percentage of Congested Travel (as a % of Peak VMT) Percentage of System Congestion (as a % of lane miles) PAGE 39

42 Figure 5.4. Annual Average Daily Traffic (AADT), 2015 Congestion Management Process Plan PAGE 40

43 Congestion Management Process Plan 6. CORRIDOR MANAGEMENT PLANNING AND PLANNING FOR CONSTRAINED FACILITIES As recognized in Section 2.2, Transportation System Management and Operation (TSMO) strategies, widening congested roadways is not effective in every situation. In some cases, widening may not be feasible or appropriate. There may also be other modes or characteristics of the corridor that take priority over roadway congestion. CORRIDOR MANAGEMENT PLANNING The Okaloosa Walton TPO developed Corridor Management Plans (CMP) for specific corridors in order to determine the long-term objectives and management of a corridor. CMPs examine historical and anticipated growth of a corridor for future planning and development processes. CMPs have been created for the following corridors: SR 85 (Eglin Parkway) Adopted June 2010 SR 189 (Beal Parkway Mary Esther Boulevard to Racetrack Road) Adopted June 2011 US 98 (Santa Rosa County Line to Beal Parkway) Adopted June 2004 PAGE 41

44 Congestion Management Process Plan 7. DATA COLLECTION NEEDS AND SOURCES This section details the process for identifying and evaluating strategies for congestion management data collection and system performance evaluation. The data collection process may be used as a guide for selecting congestion management strategies at the system and corridor levels. This section specifies data to be collected on a regular basis for the future analysis of the TPO s CMPP. LOS TABLE TRAFFIC VOLUME DATA Traffic volumes are collected and published annually by the FDOT. Volumes are counted at various locations throughout Florida, signified through station numbers. Traffic volume counts are recorded for each count station, and are used to update the AADTs in the LOS tables. This information can be obtained from the Florida Traffic Information and Highway Data CD or from FDOT s Florida Traffic Online interactive website. Other information from the traffic volume tables includes: Roadway functional classification Facility type Total signals on the segment Signals per mile Segment length FDOT count stations for the segment AADT counts for each station Historical counts for each station Corresponding LOS All of the analysis information contained in these tables is based on FDOT s 2013 Quality/Level of Service Handbook. CRASH DATA FDOT annually collects crash data for on-state highway system and off-state highway system crashes. This information can be obtained from the FDOT State Safety Office and is available in ArcGIS shapefile format. Florida Signal Four Analytics crash data developed by the GeoPlan Center at the University of Florida may also be obtained online. PAGE 42

45 Congestion Management Process Plan ITS AND OPERATIONS DATA As mentioned in Section 2, Dynamic Message Signs, Closed Circuit Television cameras, Vehicle Detector Stations, and Road Weather Information Systems are used to collect and disseminate information in the TPO service area. The Freeway Management System consists of numerous devices deployed along the interstate that monitor traffic activity and roadway and weather conditions. The current system covers Interstate 10 in Okaloosa and Walton Counties. Okaloosa County currently has over 90 signals connected to the Traffic Manager who monitors and maintains signal operations. PAGE 43

46 Congestion Management Process Plan 8. CMPP COORDINATION AND INTEGRATION Involving the TPO committees and other invested parties with the development of the CMPP is an important component of the CMPP process. Furthermore, it is also essential that information and recommendations from the CMPP are integrated into other TPO planning documents, such as the Long Range Transportation Plan (LRTP). LRTP INTEGRATION The CMPP is an integral part of a TPO s planning process, which also includes the LRTP, the Transportation Improvement Program (TIP), Unified Work Program, (UPWP), and the Public Participation Plan (PPP). The CMPP guides the overall transportation planning process by: Identifying operations and management protections with the potential to be included in the TPO s TIP and LRTP Identifying a set of congestion mitigation strategies that can be applied to congested corridors TIP INTEGRATION The TIP considers congested corridors, although there is no designated funding for implementing mitigation strategies. Projects are implemented through the Transportation System Management (TSM) projects, Corridor Management Plans, and the inclusion of other local and FDOT projects. TRANSPORTATION SYSTEM MANAGEMENT, OPERATIONS, AND ITS LINKAGE The Okaloosa-Walton TPO, in partnership with the Florida-Alabama and Bay County TPOs, completed a Regional ITS Plan in The Regional ITS plan identified and evaluated the existing ITS networks, evaluated future ITS needs, and determined additional staffing needs for operation and maintenance of future ITS improvements. This plan identifies the current and future needs of the area to synchronize existing infrastructure and transportation systems. PUBLIC PARTICIPATION PLAN (PPP) INTEGRATION The public involvement process is an attempt to involve all persons in a community, regardless of race, income, or status, involved in future transportation planning. The established Public Involvement Plan (PIP) is a working document which serves as guidance for public involvement practices. The development of a PIP is the first step taken during the development of a CMPP. The public involvement plan outlines the process of connecting the impacted community with PAGE 44

47 Congestion Management Process Plan the study area. Once the study area for a CMPP is defined, community members and stakeholders are invited to join the team to assist in defining congestion deficiencies, and influencing the development of low-cost, short-term mitigation strategies. The public involvement steps are outlined in Figure 8.1. Figure 8.1. Public Involvement Objectives Group Selection Role Education Create Opportunities Objective: Ensure every socioeconomic group has an opporturnity to give input on the CMPP. Demographics of study area Identification of key community groups and stakeholders Objective: Educate the public about their role in the planning process. Host workshops and forums Attend local organization meetings and group functions Objective: Create opportunities for participation by reducing transportation challenges, work schedule conflict, and eliminate non-disability complaints. Select transit-accessbile (if available) and ADA-compliant venues Reserve venues in study area, and provide a variety of meeting times CMPP IMPLEMENTATION To review, the CMPP goes through either a major update or a minor update each year. The minor update involves updating the LOS tables and performance measures spreadsheet. The major update occurs once every five years, concurrent with the LRTP update. Therefore, the CMPP exists as a living document which regularly produces recent information to inform the planning decisions of the Okaloosa Walton County TPO. MONITORING AND TRACKING The performance of the congestion mitigation strategies along with their performance measures will be monitored and tracked together with the CMPP major update every five years. PAGE 45