Options and Innovations Toolkit: Context Sensitive Solutions for Rural Town Centers and Corridors January 2004

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1 Options and Innovations Toolkit: Context Sensitive Solutions for Rural Town Centers and Corridors January 2004 Makers Architecture & Urban Design The Transpo Group

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3 OPTIONS AND INNOVATIONS TOOLKIT: CONTEXT SENSITIVE SOLUTIONS FOR RURAL TOWN CENTERS AND CORRIDORS Prepared for: Puget Sound Regional Council Prepared by: MAKERS architecture and urban design The Transpo Group Additional copies of this document may be obtained by contacting: Puget Sound Regional Council ~ Information Center ~ 1011 Western Avenue, Suite 500 ~ Seattle, WA ~ ~ FAX ~ infoctr@psrc.org Sign language and communication material in alternative formats can be arranged given sufficient notice by calling Grace Foster at TDD\TTY: Funding for this document provided in part by member jurisdictions, grants from U.S. Department of Transportation, Federal Transit Administration, Federal Highway Administration and Washington State Department of Transportation. PSRC fully complies with Title VI of the Civil Rights Act of 1964 and related statutes and regulations in all programs and activities. For more information, or to obtain a Title VI Complaint Form, see or call

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5 OPTIONS AND INNOVATIONS TOOLKIT: CONTEXT-SENSITIVE SOLUTIONS FOR RURAL TOWN CENTERS AND CORRIDORS Introduction... 1 Background... 1 How to Use This Toolbox... 3 Some General Considerations... 4 Tool Kit... 7 Organization... 7 Planning Tools... 8 Circulation Network Planning: Alternate Routes...9 Speed Management and Street Classification...16 Multimodal Transportation...20 Planning of Transition Areas...25 Linking Land Use to Transportation...30 Transit...35 Design Tools Roadway and Intersection Design...39 Access Management...46 Accommodating Trucks and Other Large Vehicles...50 Accommodating Pedestrians and Bicycles...53 Transition Area Physical Improvements...58 Providing Parking...60 Enhancing Main Streets and Promoting Town Redevelopment...63 Bibliography... 68

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7 Introduction Background Rural corridors are the highways and major arterials connecting rural towns to each other and back to the metropolitan center. In Puget Sound, they are roadways such as State Routes 164, 203, 305 and 92 connecting rural town centers such as Enumclaw, Graham, Poulsbo, Duvall and Granite Falls. These and similar rural corridors are critical transportation lifelines for rural communities; carrying freight for resource based industries and skiers, hikers and boaters to recreation destinations. School and transit buses as well as emergency vehicles depend on rural corridors. Clearly, mobility and safety are fundamental concerns in the design and planning of these roadways. At the same time, we expect rural corridors to perform other roles as well. In many cases they run directly through small towns, acting as their commercial main streets. Rural communities logically want these road sections to foster businesses and support pedestrian activity. Many rural corridors traverse historic districts or scenic and wilderness areas so the visual qualities of the road design must be considered. And, environmental constraints limit roadway construction in many rural areas. Realizing that all of these factors must be addressed during corridor planning and design, highway designers began to take a more comprehensive view to toward their activities. Beginning in the 1960 s and 70 s with the passage of the National Environmental Policy Act (NEPA) and the Washington State Environmental Policy Act (SEPA) roadway designers began to consider the larger impacts of their proposals on both the natural and human made environment. Figure 1. Factors to be considered in planning. (Source: FHWA-PD Flexibility in Highway Design. By the mid 1990 s it had become clear that there was a need for new approaches to highway design. In 1995, Congress passed the National Highway System Designation Act which called for more flexible highway design standards in order to promote conservation of historic and scenic resources. In response, the Federal Highway Administration (FHWA) and partnering agencies began a program to revise the way highways are planned and designed. This effort gave rise to the concept of Context Sensitive Design (CSD) or Context Sensitive Solutions (CSS). In the words of the MAKERS architecture and urban design and The Transpo Group, Inc. for Puget Sound Regional Council 1

8 The fundamental question is does the highway serve the town or the town serve the highway? (Traffic Engineering Handbook, Institute of Transportation Engineers, 5 th Edition.) National Cooperative Highway Research Program (NCHRP) report 480: A Guide to Best Practices for Achieving Context Sensitive Solutions: Context Sensitive Design (CSD) is among the most significant concepts to emerge in highway project planning, design, and construction in recent years. Also referred to as "Thinking beyond the Pavement," CSD reflects the increasingly urgent need for DOTs to consider highway projects as more than transportation. CSD recognizes that a highway or road itself, by the way it is integrated within the community, can have far-reaching impacts (positive and negative) beyond its traffic or transportation function. The term CSD refers to as much an approach or process as it does to an actual outcome. The national Thinking Beyond the Pavement workshop held in 1998 developed the following principles for CSD/CSS practice. Figure 2. Multidisciplinary teamwork and stakeholder communication are important aspects of CSD/CSS practice. A vision for excellence in transportation design includes these qualities: The project satisfies the purpose and needs as agreed to by a full range of stakeholders. This agreement is forged in the earliest phase of the project and amended as warranted as the project develops. The project is a safe facility both for the user and the community. The project is in harmony with the community and preserves environmental, scenic, aesthetic, historic, and natural resource values of the area. The project exceeds the expectations of both designers and stakeholders and achieves a level of excellence in people's minds. The project involves efficient and effective use of resources (time, budget, community) of all involved parties. The project is designed and built with minimal disruption to the community. The project is seen as having added lasting value to the community. A vision of the process which would yield excellence includes these characteristics: Communicate with all stakeholders in a manner that is open, honest, early and continuous. Tailor the highway development process to the circumstances. Employ a process that examines multiple alternatives and that will result in consensus on approaches _toolbox.doc - 1/27/2004

9 Establish a multi-disciplinary team early with disciplines based on the needs of the specific project and include the public. Seek to understand the landscape, the community, and valued resources before beginning engineering design. Involve a full range of stakeholders with transportation officials in the scoping phase. Clearly define the purposes of the project and forge consensus on the scope before proceeding. Tailor the public involvement process to the project. Include informal meetings. Use a full range of tools for communication about project alternatives (e.g. visualization). Secure commitment to the process from top agency officials and local leaders. Thus, Context Sensitive Design and Context Sensitive Solutions involves balancing a number of objectives through a collaborative process that considers a wide range of planning and design options. This Options and Innovations Toolbox presents some planning and design tools for achieving context sensitive solutions. As the name implies, the tools present a number of different ideas that may or may not apply to a given situation. Also, many of these ideas are recent, and research and new applications are ongoing. In most cases the tools are most useful in reconciling diverse objectives and resolving typical problems facing teams who are upgrading their rural corridors and town centers. While CSS concepts applies to urban, suburban and rural highways, this Toolbox is specifically oriented to rural corridors and the town centers through which they pass. Context sensitive design asks questions first about the need and purpose of the transportation project, and then equally addresses safety, mobility, and the preservation of scenic, aesthetic, historic, environmental, and other community values. Context sensitive design involves a collaborative, interdisciplinary approach in which citizens are part of the design team. (Thinking Beyond the Pavement, Maryland State Highway Administration workshop) How to Use This Toolbox The toolbox is divided into two sections covering planning and design. Although there is no bright line separating corridor planning from design, the tools in the planning section tend to be more applicable to those tasks emphasized early in the corridor development process such as setting objectives, highway criteria, design speeds, route alignment, access standards, multi-modal considerations, and transit service. The planning section also emphasizes integration of corridor planning with comprehensive and sub-area development planning under the Growth Management Act (GMA). Design tools MAKERS architecture and urban design and The Transpo Group, Inc. for Puget Sound Regional Council 3

10 emphasize physical elements such as roadway and intersection design, pedestrian and bicycle facilities, parking and elements to encourage main street redevelopment. Many of the tools are interrelated, and often teams will incorporate a number of tools on an individual project. For example, a gateway improvement of a section of roadway on the edge of a town center might include rechannelization from 4 to 3 lanes, driveway restrictions (access management), landscaping standards, land use controls, and a sculptural welcome sign. Each tool section includes a brief description of the tool, areas where it may be most applicable, considerations for its use, examples, and references for more information. The references may be the most valuable part, because this document is a brief overview and many of the resources referenced in the discussion include much more detail. Many of the most valuable resources are available on the internet, along with other links. Some General Considerations Follow a logical planning and design process While these tools can be applied to an individual project, they are far more effective if incorporated into a collaborative state/county/local process that incorporates public participation, considers the broader transportation and community planning objectives, evaluates planning level alternatives, and identifies a range of design considerations before advancing a final design proposal. The WSDOT handbook, Building Projects That Build Communities, details such a process and is an invaluable aid in initiating a collaborative effort. The handbook also includes a lot of useful information about corridor planning and is a good resource for communities wishing to initiate corridor improvements. Build Teamwork Building Projects That Build Communities rightly stresses the need for teamwork among state, county and local government agencies, affected tribes, businesses residents and other interest groups. Additionally, other local communities should be involved if the decisions affect their jurisdiction. During the Rural Town Centers and Corridors workshops sponsored by the Puget Sound Regional Council (PSRC), held _toolbox.doc - 1/27/2004

11 during spring 2003, participants noted that a primary determinant of success in rural corridor projects is the building of a cohesive planning and design team. Use the Right Tool for the Right Job Not all of these tools are appropriate in all situations. One size does not fit all. Consider the full range of options but carefully evaluate whether or not the solution is appropriate in your conditions. For example, roundabouts have become a popular solution for difficult intersections, but experience has shown that they are most effective in only certain situations. Share Experience Although each community is unique, there is a lot that can be learned from the experience of others. Seek out other communities that have tried the tools that you are considering and find out the lessons that they learned. And, do not forget to return the favor when someone else is searching for solutions. The internet makes networking much easier now, and the fact that new ideas and experiences are emerging so rapidly suggests that a clearing house for such information might be a useful effort. MAKERS architecture and urban design and The Transpo Group, Inc. for Puget Sound Regional Council 5

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13 Tool Kit Organization The tools discussed in this guidebook are divided into planning tools and design tools, the topics roughly corresponding to the issues discussed at the corridor planning and implementation phases. However, the two are not mutually exclusive. For example, it may be necessary to explore some design issues such as intersection design during the planning phase just to ensure that there is no fatal flaw in a plan alternative. Also, many of the individual topics overlap. Access management, for example, supports a number of other tools. Each topic includes a brief description, a discussion of applications, considerations (pluses and minuses), and examples. The most important part may be the references and links to more information. MAKERS architecture and urban design and The Transpo Group, Inc. for Puget Sound Regional Council 7

14 Planning Tools The planning tools described in this section will generally be most useful in the planning phase, in which the planning team and stakeholders: 1. Establish the general objectives. 2. Explore alternative solutions. 3. Evaluate the alternatives with respect to the objectives. 4. Identify a preferred concept from the alternatives. 5. Formulate an implementation strategy and assign roles for the next steps. The planning tools will likely be most useful in Steps 2, 4, and 5, in which technical solutions help participants generate ideas, resolve conflicts, and address specific issues _toolbox.doc - 1/27/2004

15 Circulation Network Planning: Alternate Routes Description The transportation system for a corridor or rural center includes more than just the main highway. The various streets have a functional hierarchy based on the need, or desire, to serve through traffic movements or provide local access and circulation. The system has to work together as a whole or traffic issues will likely develop along the rural corridor or within the rural center. If the side streets are not able to adequately serve their functions for circulation or as connections to business districts or residential neighborhoods, then the main corridor will also be used for these functions, leading to potential congestion or safety issues. On the other hand, if the highway cannot adequately handle the through travel demands, then traffic may divert to local streets that were never intended to handle the higher traffic volumes. As shown in the figure to the right, a range of possible roadway system strategies can be considered to help spread traffic to the appropriate locations [Main Streets, p.34]. One-way couplets Bypass routes Secondary routes Frontage roads The circulation options may be used individually or combined to meet the specific needs along a corridor. The following describes the general concepts, applications, and considerations for the various options. One-Way Couplet A couplet uses two one-way streets to serve traffic in a corridor. The streets are generally parallel to each other. The two streets effectively act as a larger, single street. The streets are usually separated by one or two blocks, but can be spaced further apart. Couplets are often found in downtown business district settings. Physically, couplets can be easy and relatively inexpensive to implement. A pair of parallel, two-way streets is reconfigured so each street serves traffic in one direction. At each end of the couplet, the streets would transition back to a single two-way Figure 3. Newport, before and after. MAKERS architecture and urban design and The Transpo Group, Inc. for Puget Sound Regional Council 9

16 Circulation Network Planning: Alternate Routes Figure 4. Possible intersection conflicts. (Source: Traffic Regulations, Traffic Engineering Handbook, 4th ed.) highway. The couplet typically provides more capacity than two two-way streets. The additional capacity is due to reduced conflicts. One-way couplets are generally applied under the following conditions: A single street does not have adequate capacity and cannot be easily improved to handle higher traffic volumes Two parallel streets that can be configured as arterials are located one or two blocks apart There are adequate cross-streets to serve circulation of traffic and U-turns In addition to improving capacity, one-way couplets have several advantages. These include improved signal progression, which allows vehicles to travel through the system at a steady speed with reduced delays. Couplets can result in increased travel speeds, unless controlled by signal timing. Slower speeds can also be achieved through design features such as curb bulbs or maintaining on-street parking. One-way operations reduce the number of possible conflicts at intersections, which reduces the number and severity of some types of accidents (see graphic). One-way couplets can also reduce vehicle-pedestrian conflicts at some intersections by eliminating some of the turn movements. In some cases, one-way couplets allow on-street parking to be retained by increasing the capacity without adding more travel lanes in a corridor. Travel lanes on a two-way street are often developed by eliminating on-street parking. One-way streets can also reduce accidents associated with parking maneuvers. Implementation of a one-way couplet may have some disadvantages. Travel distances can increase because access to some locations will require circulating around the block to the other couplet. This can increase traffic volumes on cross streets that may not be adequately designed to handle higher traffic loads or specific turn movements. In areas where there are large vehicles such as trucks, buses, or recreational _toolbox.doc - 1/27/2004

17 Circulation Network Planning: Alternate Routes vehicles, the one-way couplet will need to incorporate U-turn routes to handle the larger vehicle widths and turn radii. One-way streets also may be confusing to visitors to an area. This can lead to drivers circulating within the couplet area to find their destination. Use of a one-way couplet can be seen as a potential loss of half the traffic exposure to businesses located along the existing highway. Business owners often view one-way streets negatively. However, a one-way couplet could also be a way to expand the width of the commercial district, if this supports the land use plan. In addition, emergency vehicles could be delayed along one-way streets, if traffic volumes and queuing at signalized intersections block the corridor. On a two-way street system, emergency vehicles can bypass traffic queues by using the opposing travel lanes as they approach an intersection. If a one-way couplet is used, the transitions to/from the two-way highway must be carefully planned, designed, and implemented. The transition must allow drivers to easily find their way. Signing and good roadway and intersection design will be required to minimize safety problems. In many cases, a one-way couplet can be implemented and tested at a relatively minor cost. If the test is unsuccessful, the streets can be returned to two-way operations. Bypass Route A bypass route is intended to provide an alternative for through traffic. A bypass would generally be a new roadway corridor that is located on the outskirts of a community. They often serve as a freight route to help reduce delays and impacts of truck traffic. To be most effective, some type of access management is typically applied to the bypass to reduce the negative affects of too many driveways or local streets on capacity and safety. Bypasses are often identified as an initial solution to congestion issues in a community. However, the high costs and potential issues associated with developing a new roadway can make them very difficult to implement. In addition, the existing highway MAKERS architecture and urban design and The Transpo Group, Inc. for Puget Sound Regional Council 11

18 Circulation Network Planning: Alternate Routes corridor may be transferred to the local community, which would then have responsibility for maintenance and operations of the existing route after the bypass is built. One of the most important considerations in evaluating a bypass is the origin and destination of trips. This can be obtained through driver surveys or using a license plate matching process. In many cases, the traffic studies may show that much of the traffic that is perceived as through trips is actually to/from the local area. These trips may not be attracted to a new bypass. Bypasses can also divert too much traffic, resulting in lost business activity along the old highway corridor. Land use controls and access management requirements can be used to limit some types of development of new auto-oriented businesses along the bypass route, thereby reducing potential economic impacts for commercial development along the old highway. Bypasses can greatly improve the pedestrian characteristics along the existing highway by diverting high volumes of traffic. Large trucks will also typically use the bypass, further enhancing the pedestrian environment along the existing highway. The removal of high traffic volumes and large vehicles could also allow implementation of curb extensions, wider sidewalks, or addition of parking along the existing highway. Figure 5. Sequim bypass. Bypasses might be considered under the following conditions: Documented high volume of through traffic Use of corridor as a designated truck or freight route One or more corridors are available for a bypass that would attract through traffic Access management and land use regulations are applied to maintain the function, capacity, and safety of the bypass route Potential environmental impacts along the new route can be adequately mitigated Funding can be obtained _toolbox.doc - 1/27/2004

19 Circulation Network Planning: Alternate Routes The City of Sequim worked with WSDOT to build a bypass for SR 101 around the community. So far, the impacts of the bypass on downtown businesses have been positive. A few of the auto-oriented businesses have located out of downtown for better highway exposure, but the core downtown businesses have experienced greater trade because of reduced congestion and greater foot traffic. Secondary Routes Secondary routes often serve as a form of local bypass route. A secondary route can be a road paralleling the highway or a connector road that allows a portion of traffic to avoid at least a section of the highway through a community. A portion of local or through traffic can be handled on a secondary route, thereby relieving the primary highway of that increment of traffic. Secondary routes can be developed by converting existing collector or local streets to handle higher traffic volumes. This may require some reconstruction to provide design standards to facilitate the level and type of traffic. In order for the route to be effective, easy on/off access for the intended traffic patterns is required. Proper signing also aids drivers navigating to/from a secondary road. Developing new roadways as secondary routes can also serve a burgeoning area of a community. The Lindvog Road extension in Kingston provides local traffic with an alternate route around SR 104, which is often clogged with cars waiting for the ferry. In addition, this roadway provides off-highway access to businesses and opportunities for new development. Figure 6. Lindvog Road, Kingston. Figure 7. New Lindvog Road connection (blue dashed line) south of the highway (red line). MAKERS architecture and urban design and The Transpo Group, Inc. for Puget Sound Regional Council 13

20 Circulation Network Planning: Alternate Routes Frontage Roads Frontage roads usually parallel one or both sides of a highway and connect to the highway via major intersections or interchanges. The frontage roads are used for local access and circulation, thereby reducing these conflicts along the main highway. They can be an effective approach to access management along the highway corridor. Frontage roads are often considered as part of a new highway alignment. They can be readily integrated as part of a highway corridor in a relatively undeveloped area that is proposed for more growth. Land use plans and development regulations should be in place to support the implementation of frontage roads. Figure 8. Main SR 2 highway through downtown Leavenworth. Frontage roads provide better access to both commercial and residential developments by shifting traffic to slower speed, lower volume streets. This increases the ability of drivers to find their destination and/or parking without impeding through traffic on the highway. While frontage roads may enhance capacity and safety of the highway by separating local and through traffic, they must be designed properly to function adequately. Too many cross-street intersections with the highway may reduce the efficiency of the corridor, resulting in increased delays, traffic queues, and safety problems. The spacing between the frontage street and the highway must also be adequate to minimize the poor traffic operations typically associated with closely spaced intersections. Figure 9. Leavenworth s frontage road provides convenient access and parking for the town center and reduces congestion on SR 2 (Figure 8). Frontage roads can provide good pedestrian facilities on one or both sides of the highway. However, the distances between crossover intersections may make it unrealistic for pedestrians to walk to locations on the other side of the highway. Ample and advanced signing to the frontage roads is required to help drivers transition from the highway to local streets. Turn lanes and traffic controls can be used to help direct traffic to major points for accessing/egressing the frontage roads _toolbox.doc - 1/27/2004

21 Circulation Network Planning: Alternate Routes Other Examples Winslow: High School Road Before Plan After Figure 10. In 1987, the City of Bainbridge Island (then called Winslow) began thinking strategically about ways to grow more efficiently, protect their natural character, and enhance local circulation. Realizing that they needed to separate local traffic and focus new development at specific nodes, the community revised their Comprehensive Plan. Later, the community upgraded the loop of roadways connecting various parts of the community together, providing pedestrian and bicycle access throughout. Resources Main Street... When a Highway Runs Through It: A Handbook for Oregon Communities (November 1999) provides more description on some of the street system planning efforts. Traffic Engineering Handbook, Institute of Transportation Engineers, 5 th Edition, MAKERS architecture and urban design and The Transpo Group, Inc. for Puget Sound Regional Council 15

22 Speed Management and Street Classification Description Rural highways serve many functions. They connect rural communities to each other and to urban areas. They serve local and regional freight movement, connect resource lands (e.g., timber or gravel) to the market, and provide farm-to-market transportation routes. They are primary access routes to a range of recreational activities such as hiking, skiing, and fishing. Rural highways also serve as Main Street within some rural town centers. Travel speeds along rural highways are often a major issue due to the various functions that they serve. For example, heavy gravel trucks may adversely affect the travel speeds of commuters using the same corridor, and higher speed commuter traffic is not considered compatible with a pedestrian-oriented Main Street. Travel speeds along a corridor are a function of several factors: The classification and design speed of the facility The type of terrain Roadway configuration and frequency of driveways and intersections The type and density of land uses The type and volume of traffic Figure 11. Speeds can vary from unobstructed rural areas to town centers. Figure 12. Service relationship of functionally classified highway systems. (Source: Safety Effectiveness of Highway design Features.) These factors may change significantly over the length of a corridor. As the corridor serves the various travel functions (e.g., rural-to-rural versus Main Street), the appropriate design and operating speeds should be evaluated. The classification of highways, arterials, and local roads serve several functions. The classifications support transportation planning by identifying a hierarchy of streets to serve different transportation function. The classification is also used to establish design criteria and affects which funding programs can be used for which roadways. In most cases, the functional classification affects the type and level of access allowed, which can affect land use decisions. Streets and highways are classified by the type of traffic function they are to serve. The basic functional class relationship to mobility and access is shown to the left. The selection of the functional classification has a direct bearing on the design speed. Higher classification facilities (such as arterials) tend to have higher design speeds to support their mobility function, while local streets have lower design speeds to accommodate access _toolbox.doc - 1/27/2004

23 Speed Management and Street Classification Although a highway corridor may serve an overall arterial function level, it may also serve as a Main Street in a rural town center. One of the challenges is to allow slower speeds in built-up areas to improve safety and maintain/improve the historical or economic character of a community, while still providing the overall functions of the roadway. Application One strategy for addressing functional class and design speed elements is to consider the full corridor, not just individual segments. If slower speeds are desirable in a rural town center, design features of the full corridor may be part of the solution. As shown in the following figure, application of access management and synchronizing traffic signals may be used in or adjacent to the town center. These approaches can allow traffic to travel into or through the community at a slower, but consistent speed. The roadway design features may also be modified to support higher travel speeds between communities, where lower density/intensity land uses have need for access to the highway. Combined, these different strategies can help provide an overall acceptable travel speed for the corridor, while slowing speeds in the town center. Figure 13. A comprehensive approach to travel time reduction. MAKERS architecture and urban design and The Transpo Group, Inc. for Puget Sound Regional Council 17

24 Speed Management and Street Classification In some states, design speeds are initially set based on the roadway function, the physical environment, and the volume and characteristic of the traffic a roadway will serve. The design speed is generally set early in the design process since it controls many of the geometric requirements for a corridor. The posted speeds are set based on these factors. As roadways are improved in the future, actual travel speeds can be used to establish a new design speed for the highway corridor. This process can lead to an increase in posted speeds if the actual speeds were higher than the original speed limit, as shown in the Figure 14. Design teams and the adjacent communities should be aware that this design method is not WSDOT policy and that the setting of design speeds can impact the project s objectives and the adopted goals and land use plans along the corridor. Figure 14. The speed limit spiral caused by setting design speeds too high. The American Association of State Highway and Transportation Officials (AASHTO) has defined design speed as the maximum safe speed that can be maintained over a specified section of highway when conditions are so favorable that design features of the highway govern. (Traffic Engineering Handbook, Institute of Transportation Engineers, 5 th Edition, 1999.) Considerations Land Use Travel speeds that reflect the adjacent land use characteristics can support a community vision while improving safety and minimizing overall system delays. Travel speeds that are too high can make it difficult to implement a pedestrianoriented land use concept. Transitions Special consideration should be given to speed transition areas. These are used to provide a smooth change from the higher speed rural highway to suburban areas or rural town centers. The transitions should address roadway design features and land use. A gateway or other feature may assist in identifying the speed transition. Changes in intersection or roadway designs are effective transitions (e.g., change from roadway shoulders to sidewalks or use a median or landscaping) _toolbox.doc - 1/27/2004

25 Speed Management and Street Classification Main Street Design There is acknowledgement that a different type of traffic management is needed when a highway passes through a rural town. In most cases, this has been based on highway performance and not the needs of the town. How the highway can be adapted to the town should be considered to make them more compatible with each other. Use of roadway design features such as curb bulbs, wider sidewalks, on-street parking, and landscaping can alert drivers that they are no longer on the open highway. (These types of strategies are presented in more detail later in the tool kit.) Design and Posted Speeds Design and posted speeds should be based on the traffic functions, physical terrain, and adjacent land uses. Application of a more uniform design speed for a corridor, where possible, can result in a more consistent travel speed, which is generally considered to improve safety. Selection of a design speed also affects the horizontal and vertical alignments of a highway or other roadway. These features can affect the environment, the cost, or feasibility of an improvement project. Resources A Policy on Geometric Design of Highways and Streets 2001; American Association of State Highway and Transportation Officials. Flexibility in Highway Design; Federal Highway Administration. Flexible Design of New Jersey s Main Streets; Reid Ewing and Michael King. Safety Effectiveness of Highway Design Features, Volume 1, Access Control, FHWA, 1992 MAKERS architecture and urban design and The Transpo Group, Inc. for Puget Sound Regional Council 19

26 Multimodal Transportation Description Rural highway corridors serve more than just automobiles and trucks. They are also key elements of the transit, bicycle, and pedestrian systems. How these other travel modes are (or are not) accommodated can affect overall transportation needs, operations, and safety. Blending the various travel modes into a corridor can greatly enhance the look and feel of a community and improve safety and operations. Each of the alternative transportation modes has its own needs. The overall planning and design must, however, address the modes collectively since they may result in conflicts or need for more right-of-way. These elements need to be tied to the land use and regional transportation planning. Figure 15. Snoqualmie bus stop. Transit Service Most of the transit service in rural areas where available uses the rural highway corridor. The bus routes use the highway to connect between rural town centers and to connect rural communities with urban areas where most of the jobs are located. Within the rural town centers, transit service may be limited to the highway due to lack of land use/ridership densities. The lack of a good local circulation street system may make it difficult for transit to serve the community efficiently except along the highway. These types of constraints may limit the availability of transit service, which then continues the need to provide more roadway capacity to serve the transportation needs within the communities. To support transit along a rural corridor or within a rural town center, the roadway designs must accommodate the larger size of buses. Designs to accommodate transit must consider turning radii and the locations of bus stops. Local communities need to work with the transit providers to identify design standards to support the type of transit service that will be provided. The various agencies need to work together to define the most desirable and efficient routing of buses. If buses are to circulate off the main highway, then the local street system must be adequate to accommodate the larger vehicles. Buses also weigh more than typical passenger cars, so the design of local streets should consider the impacts on pavement _toolbox.doc - 1/27/2004

27 Multimodal Transportation Transit requires more than just roadways to be effective. Local streets must have good sidewalks or other pedestrian facilities to connect adjacent land uses to the bus stops. Street lighting would enhance pedestrian access to/from bus stops as well. The location of a bus stop must be balanced between the needs of the transit patrons and other highway users. Bus stops are usually located in the vicinity of intersections to facilitate the crossing of streets. Bus stops located after an intersection with a cross street help reduce the potential delays for traffic turning at the intersection. They also help reduce pedestrian collisions near bus stops. Bus stops that are set back from the curb help separate people waiting for a bus from traffic. Bus shelters should be considered, where practical, to provide shelter from wind and precipitation. These amenities can make transit a better asset to the community. Local jurisdictions can utilize land use to help support transit. Higher density residential or employment areas located within walking distance to transit can help support higher levels of transit service. The land use, street system, and transit services planning needs to be coordinated. Local cities should also review their development regulations related to parking requirements. Too much parking can provide a disincentive for transit use. This would be especially important as part of developments located within walking distance of a bus stop that could serve part of the travel demands. On the other hand, the city can work with the transit provider and/or WSDOT to identify opportunities for park-and-ride or park-and-pool lots. These lots would typically serve weekday commuters from the community or surrounding area. The parking could then be used for local activities such as a fair or other events on weekends. If park-and-ride facilities are not conveniently located, some transit patrons may use available on-street parking that would impact local businesses. This relationship needs to be thought out as part of the land use/transportation connection. MAKERS architecture and urban design and The Transpo Group, Inc. for Puget Sound Regional Council 21

28 Multimodal Transportation Bicycles Rural highway corridors often provide the most direct routes for bicyclists in the rural areas. Planning facility improvements should consider the type and volume of bicycle activity. Will the corridor be used primarily by advanced adult bicyclists or by families/children? Is the corridor used for commuting, recreation, or both? Defining the type and design of a bicycle facility must address the type and mix of traffic, the speed of traffic, the terrain, and overall roadway design. Transitions between the rural highway corridor and Main Street functions must also address bicycle usage. Figure 16. Bicycle lane, Kingston. Bicycle facilities can range from separate trails, striped bike lanes, wider outside travel lanes, or paved shoulders. AASHTO states that the minimum width of a shoulder for bicyclists is 4 feet. Bicyclists may ride in a regular travel lane shared with vehicular traffic. Separated trails or multi-use paths provide the highest type facility and may use an abandoned railroad right-of-way or other existing corridor. Paved shoulders are often used for bicycle use along rural highways. Bike lanes or wider outside travel lanes are options within more built-up suburban or rural areas along a corridor. Addition of a striped bicycle lane or a separate trail will require right-of-way. This may affect the project cost or impact existing or future land uses. Use of a designated bike lane also may affect availability of on-street parking. As a minimum, the roadway design would need to account for the interaction of on-street parking and bike lanes. Bike lanes may also affect how wide a curb bulb at intersections can be. (See the Accommodating Pedestrians and Bicycles section on page 53.) Pedestrians Outside of the town centers, rural highways do not typically have a high level of pedestrian activity. The distance and environment limit the number of pedestrians outside of the more built-up town centers or suburban development areas. Multi-use separated paths or roadway shoulders typically serve pedestrian activity in the less developed areas. Sidewalks or other pathways within the highway right-of-way are usually desired within town centers or other developed areas. The sidewalk or pathway systems need to be blended with land uses and anticipated level of activity. Wider sidewalks are desirable where high volumes are anticipated. Simple activities _toolbox.doc - 1/27/2004

29 Multimodal Transportation such as window shopping can also result in a desire for wider sidewalks. In addition, the pedestrian system must provide access to transit service. It is very important to identify areas of potential pedestrian use and plan a safe and efficient system. A pedestrian system plan should be considered to identify how pedestrians will move around the activity center. This would help identify locations where special treatments are desirable. Crosswalks should be a minimum of 6 feet wide, with wider crosswalks desirable in areas with high levels of pedestrian activity. Various types of markings can be used as shown on Figure 12. Special treatments can be employed to enhance the visibility of pedestrian crossings. These include curb extensions, use of a different pavement type or marking, and signing or signals. Each community and particular application needs to view these issues in context of land use and other design elements. How well does the existing or proposed system support pedestrian activities? A series of criteria should be considered to help prioritize improvement strategies and implementation. Examples of these criteria include: Sidewalk width Clear width Sidewalk condition Continuity On-street parking Street buffer Street traffic Pedestrian amenities Adjacent building design Aesthetics Intersection treatments Pedestrian-oriented activity Figure 17. Different crosswalk patterns should be considered. MAKERS architecture and urban design and The Transpo Group, Inc. for Puget Sound Regional Council 23

30 Multimodal Transportation Street lighting should be included at pedestrian crossings. Intersection lighting would be supplemented with lighting along the highway and side streets used by pedestrians. The lighting fixtures can be designed to enhance the transition between rural highway and town center. Street level, pedestrian-oriented lighting can also be used to enhance the overall look and feel for pedestrian activity and adjacent land uses. Sidewalk Condition High Degree Well-maintained Smooth surface Lack of weeds Sidewalk Condition Low Degree Poorly-maintained Trip hazards and weeds Resources Pedestrian Facilities Guidebook, Otak for Washington State Department of Transportation, September A Policy on Geometric Design, American Association of State Highways and Transportation Officials, Transit/Land Use Linkages, Bellevue Chamber of Commerce _toolbox.doc - 1/27/2004

31 Planning of Transition Areas Description One of the most important lessons town center planners and corridor designers have learned is that the corridor must be considered both as a whole and as separate segments. While a corridor s mobility and safety performance is important on a regional basis, that same overall performance is dependent upon each segment performing well. One type of corridor segment that is too often not given the attention it deserves is the transition area between the town center and its rural surroundings. Transition areas is a particularly appropriate term, not only because it is the area where land use and street character change, but because it is the area where motorists must transition between relatively high speed, free-flowing traffic to slower speed, controlled movement. Research has shown that motorists tend to underestimate their speeds when entering a reduced-speed zone. (See FHWA-RD , noted in Main Street... When a Highway Runs Through It.) While communities can reduce vehicular speeds and upgrade safety in transition areas through roadway design (see below), it is especially important to also address these areas through supportive land use planning and access management. Figure 18. A typical transition area segment. (Source: Main Street... When a Highway Runs Through It. Figure 19. Scenes from various highway segments. MAKERS architecture and urban design and The Transpo Group, Inc. for Puget Sound Regional Council 25

32 Planning of Transition Areas Applications and Related Tools The most obvious transition areas are those just outside the town center, but the techniques discussed below and in the Design Tools section on page 58 are applicable anywhere the roadway characteristics and context change substantially. This section describes planning tools to address transition areas. These tools are most effective when combined with the transition area design tools described below. Figure 20. Winthrop s ball fields and park provide an excellent entry into town and limit the need for driveways. The gateway element announces that the motorist is entering a slower speed zone. Considerations and Techniques Land Use Perhaps the most important measure a local community can take to create an economically viable, safe, and attractive transition area is to regulate land use. In general, land use policies and zoning regulations should discourage automobileoriented commercial uses, with vehicular movements into driveways, from bleeding into the rural surroundings. While large-site industrial uses may be preferable to highvolume retail stores, provisions must be made for screening and truck access. Parks, schools, and other institutions are often well sited near town centers. The key in this situation is to ensure that the facility also has access from a cross street in a location that does not interfere with the changing lane configuration. Of course, a signalized intersection (or other form of controlled intersection, such as a roundabout) can perform the transition function. Access Management Access management is particularly crucial to making transition areas safe because drivers are changing speed and driving conditions. The techniques listed in the Access Management section on page 46 also should be considered. Design Speed and Street Classification A highway segment s classification determines its design speed and character. As part of any transition area planning, it is important to carefully consider the classification and design speed of the transition areas. (See the Speed Management and Street Classifications section on page 16.) Many of the roadway design elements listed in the Landscaping and Design Standards paragraph immediately below are _toolbox.doc - 1/27/2004

33 Planning of Transition Areas affected by the design speed established during the planning phase. It will often be advantageous to work cooperatively with WSDOT on these issues: the local municipality providing effective land use and access regulations and WSDOT setting appropriate design speed and street classifications. With these in place, it is much easier to design and fund the roadway improvements noted below. Landscaping and Design Standards Because the transition areas serve as a town center s welcome mat, it makes sense to establish landscaping standards and/or design guidelines to ensure that the visitor entering town is not presented with unsightly storage lots, industrial areas, or forests of pole signs. While these concerns are clearly secondary to safety and smooth traffic flow, design guidelines that reduce visual distractions as well as turning movements do, in fact, support safety and mobility objectives. Substantial landscape screening, in particular, can provide a smoother visual transition between the open rural character and the town center s activity. Figure 21. Design standards for landscaping, screening, setbacks, and driveway access can make transition areas significantly safer and more attractive. Too often, design tools are limited to town centers and the transition areas left to develop without direction. MAKERS architecture and urban design and The Transpo Group, Inc. for Puget Sound Regional Council 27

34 Planning of Transition Areas Examples Belfair Subarea Plan Corridor improvements along SR-3 are a critical part of Belfair s Subarea Plan. The plan recommends land use and design guidelines along with a median gateway feature to create a smoother transition from the north and south into downtown. Design speeds and highway classifications set the traffic speeds from 55 mph to 30 mph. Zoning measures encourage larger site industrial and commercial uses with designated access points and landscape screening along the corridor, except where businesses present a pedestrian-oriented façade to the highway. Recommended sign provisions prohibit new pole signs and limit the height of new non-building signs to 10 feet. Driveway reduction is an especially critical element along the entries into downtown, and the plan recommends a cooperative, community-based effort to identify and eliminate or reduce unnecessary or oversized driveways. Figure 22. Transportation recommendations _toolbox.doc - 1/27/2004

35 Planning of Transition Areas Resources Main Street... When a Highway Runs Through It: A Handbook for Oregon Communities (November 1999)page MAKERS architecture and urban design and The Transpo Group, Inc. for Puget Sound Regional Council 29

36 Linking Land Use to Transportation Description Creating safe, efficient rural corridors and viable town centers through highway improvements alone, without sound land use measures, is like trying to clap with one hand. Regulating land use so that new development is orderly and predictable is essential for effective transportation planning. Reducing the number and length of trips through land use planning is one of the most effective measures, if not the most effective measure, we can take toward increasing corridor safety and mobility. Coincidentally, the economic health and community vitality of our rural towns also depend on sustainable land use patterns that support neighborhood cohesiveness, environmental responsibility, and convenient local access. In regard to corridor and town center planning, communities should consider land use development at two scales: (1) the whole of their UGA and (2) the lands directly along the corridor within about one quarter mile of the highway itself. Transportationsupportive land use planning at the larger scale involves establishing maximum densities, identifying the trip generation factor from projected development, and directing growth along efficient routes connecting to the highway corridor. Ideally, land use planning, even in rural communities, includes trip-reduction and transit-supportive measures such as directing new growth into compact neighborhoods, providing a mix of uses, and connecting development with sidewalks, paths, and bicycle trails. One outcome of this planning is mitigation requirements to make developers (and, ultimately, the new property buyers or renters) pay for a fair portion of the needed capital infrastructure improvements. Most local planners preparing comprehensive plans under the GMA are familiar with the above activities. However, it is important to remember to consider corridor improvements when updating the comprehensive plan and, conversely, to consult the comprehensive plan when undertaking corridor improvements. Establishing effective land use regulations at the smaller corridor scale involves specific districts and sites in greater detail to identify the access needs, trip generation, multimodal opportunities, visual quality, and other impacts of likely development. Working at this scale, it is also possible to incorporate future road improvements, sidewalks and bicycle lanes, right-of-way expansion, and utility needs into setbacks and driveway access requirements. The intent is that the town government, WSDOT, and local property owners work together to benefit all parties _toolbox.doc - 1/27/2004

37 Linking Land Use to Transportation Figure 23. Effective planning requires that new development be provided with efficient access to rural corridors. Duval s updated Comprehensive Plan will direct growth and street connections to minimize internal and highway congestion. By planning for growth at the south part of the city and providing a new east-west arterial, the City reduces downtown through traffic. Applications and Related Tools Since sound land use planning is fundamental to achieving rural town center and corridor objectives, the tools described here are applicable everywhere, but they are most important in cases where substantive new growth is expected. MAKERS architecture and urban design and The Transpo Group, Inc. for Puget Sound Regional Council 31

38 Linking Land Use to Transportation Considerations and Techniques Comprehensive-Scale Planning Consult with the county, neighboring jurisdictions, and WSDOT. The element that is most often missing in effective comprehensive planning, at least with regard to corridor planning, is coordination with other jurisdictions and the WSDOT. While such coordination is mandated by the GMA, participants in local workshops organized to discuss rural town center and corridor issues found that resource and time limitations prevented the interaction needed to address many critical problems, including Regional Transportation Mitigation. Since development in one town can affect rural corridors running through a neighboring town, it often makes sense to consider impact mitigation on a regional basis. Development Outside UGAs. While growth management has been effective to a certain extent in focusing growth toward urban growth areas, development is still occurring on rural lands, which, in turn, impacts corridors running through rural towns. Counties must be partners in addressing this problem. Cooperative Funding Proposals. Inter-jurisdictional coordination during comprehensive planning updates provides an excellent opportunity to identify subregional needs and initiate funding and implementation activities. SEPA Analysis. There is sometimes the opportunity to take the traffic impact analysis for land use regulations to the next level and identify comprehensive mitigation measures. This simplifies the development permitting process and provides a greater level of certainty for the property owners. At the same time, such a planned action approach can help ensure that incremental development does not produce adverse cumulative impacts. Corridor Segment-Scale Planning. The key elements to consider in corridor segment-scale planning are location, size, and number of driveways; use compatibility; site orientation; pedestrian circulation; parking; storm water management; and visual character. By examining how these issues should be addressed and setting zoning regulations and design standards, local governments can greatly influence the corridor s future performance in terms of safety, mobility, and community development _toolbox.doc - 1/27/2004

39 Linking Land Use to Transportation Examples City of Mill Creek In developing a large portion of their UGA, the City of Mill Creek conducted a subarea plan and planned action EIS for the private development north of their town center. The process involved participation by property owners and developers, who worked as a team with planners to identify alternate development scenarios and formulate a preferred land use plan. From this plan, the team established land use/design standards and a mitigation program to encourage the desired development. Part of the project involved construction of a new roadway system (see the black lines on the map), protection of North Creek drainage, and new trail systems. As a result of this effort, the City, County, and State were able to agree on a future road configuration and standards that require all new vehicle access to be at controlled intersections. Figure 24. A portion of Mill Creek s SR 527 Corridor Subarea Plan with Planned Action EIS. MAKERS architecture and urban design and The Transpo Group, Inc. for Puget Sound Regional Council 33

40 Linking Land Use to Transportation Black Diamond The four sketch plans shown here illustrate how the city of Black Diamond envisions a small shopping node on SR 169 growing over time. Key to the area s transformation is ensuring that new development provides good internal circulation coordinated with street improvements. The City has adopted design standards to direct new development to be internally coordinated and supportive of new street construction and is planning for the incremental upgrade of public roadways. In contrast to the Duvall and Mill Creek examples, which integrated land use and transportation at the comprehensive plan and district-wide scales, this study illustrates the benefits of integration at a smaller, intersection-specific scale. Figure 25. Incremental development of a Black Diamond site _toolbox.doc - 1/27/2004

41 Transit Description When planning transportation improvements in rural corridors, it is easy to forget transit service as a primary transportation asset. And yet, as rural communities evolve over time, efficient transit service will be essential to meeting both local and regional transportation challenges. Planning long term for improved transit service should be a part of comprehensive, subarea, and local redevelopment planning. Not only should plans account for bus routes and facilities, they should include provisions for transitoriented development (generally, compact, pedestrian-oriented mixed use development) around town centers and planned communities, there should also be standards encouraging transit-supportive land use throughout new developments. The Snohomish County Transit Authority, SNO-TRAN, has published helpful guidebooks on this subject. As part of their planning and design work, roadway design teams should also consider such facilities as bus lanes (with appropriate turning radii), bus stops, layover zones, and park-and-ride lots. Applicability Planning for improved bus service seems most appropriate in town centers, but new large-scaled development should also be required to consider transit-supportive measures as described below. Also, there may be opportunities along a corridor where a small park-and-ride lot may be established. For example, church parking lots often go unused during weekdays, when commuter transit demand is highest. Figure 26. The Guide to Land Use and Public Transportation has a number of ideas for rural communities. Street design for buses and large vehicles is covered in the Design Tools section. (See page 50.) Considerations Transit-Oriented Development Transit-oriented development is a term that is generally applied to areas within ¼ to ½ mile of a transit station. In the case of rural town centers, a station will probably mean a transfer point where different routes meet and/or a park-and-ride lot. Transitoriented development generally would include a mix of uses with a higher residential density (perhaps 10 to 40 dwelling units per net acre achievable with small-lot MAKERS architecture and urban design and The Transpo Group, Inc. for Puget Sound Regional Council 35

42 Transit single-family houses, townhouses, and 3- to 4-story apartment houses) and good pedestrian circulation. Bicycle connections, regional recreational attractions, and employment opportunities also augment transit-oriented communities. In rural areas, park-and-ride facilities are also a necessary part of the mix. This type of development is called transit-oriented because it supports higher ridership, which leads to more frequent transit service. The Guide to Land Use and Public Transportation, Volumes 1 and 2 (see especially Volume 2, Chapter 7, Ideas for Small Communities ), Creating Transit Station Communities, and Developing Your Center, a Step-by-Step Approach are three local resources that provide guidance on this topic. Figure 27. The Issaquah Highlands, a master-planned community, only a small portion of which is illustrated above, includes a 1000-car park-and-ride lot and advertises itself as a transit-oriented community. Combining a Microsoft campus, extensive residential areas, a pedestrian/bicycle trail system, and commercial services district, the development promotes live-work opportunities and vehicle trip reduction. Transit Supportive Land Use Transit-supportive land use strategies involve a broader mix of activities designed to encourage transit ridership throughout the community. Such strategies may include: Locating and/or clustering development within walking distance of a transit corridor. Clustering development so that the densities will support future transit service. Generally, 8 to 10 dwelling units per acre will support bus service, provided the development is located for efficient bus routing. Increasing both pedestrian and vehicular connectivity in new developments, including short plats. Addressing transit service needs in planned unit development and master planned communities. The Guide to Land Use and Public Transportation, Volume 2, Chapter 2, provides a number of transit-supportive development examples relevant to rural communities _toolbox.doc - 1/27/2004

43 Transit Additional Examples Bonney Lake Town Center Bonney Lake is pursuing an ambitious town center redevelopment plan that incorporates a new park-and-ride facility as an important attractor. Note that the plan includes improvements to the highway corridor and internal connector streets. Figure 29. Transitoriented area plan.. Figure 28. Area for transitoriented development Figure 30. Vision sketch. Resources Guide to Land Use and Public Transportation, Volumes 1 and 2 (see especially Volume 2, Chapter 7, Ideas for Small Communities ). Creating Transit Station Communities, PSRC. Developing Your Center, a Step-by-Step Approach, PSRC. MAKERS architecture and urban design and The Transpo Group, Inc. for Puget Sound Regional Council 37

44 Design Tools Design tools are generally most useful in solving problems or resolving conflicts during the design phase, when the design team addresses more discrete issues at specific locations, such as an intersection, a street segment cross-section, driveway locations, parking, and local pedestrian circulation. Design tools often involve specific standards or guidance regarding dimensional considerations and geometric configurations. Also included are local strategies for providing parking, calming traffic, and accommodating large vehicles. Some topics are discussed at both the planning and design levels. For example, the planning-level discussion of bicycle facilities covered in Multimodal Transportation addresses the planning of regional systems and corridor-wide considerations, while the design tool discussion of bicycle facilities focuses on the detailed needs of bicyclists that must be considered _toolbox.doc - 1/27/2004

45 Roadway and Intersection Design Description The design of roadways and intersections greatly affects the operation and safety of a rural highway corridor. WSDOT and local agencies have developed design standards and guidelines based on the classification of a facility. These guidelines affect design speed (as discussed above) and the physical layout of the facility. The actual design is generally part of the middle phase of a project. It follows planning and precedes actual construction. The level of flexibility in the design phase can be limited based on decisions made during project planning, so the planning phase must be conducted with the design elements in mind, including speed, volume of traffic, sight distances, grade, and slopes. The width of the travel lanes and shoulders are also defined as part of this phase. Before defining the appropriate design features for roadways and intersections, major decisions that need addressing include defining the specific objectives of the project and identifying the best alternative. Key design features include the number and width of travel lanes, the type of median and shoulder treatment, need for bridges, use of traffic barriers, and horizontal and vertical alignments. The various elements of intersection design must balance the conflicts between providing safe and efficient traffic flow with the physical impact to the surrounding area in terms of right-of-way, topography, and environmental issues. Figure 31. The National Cooperative Highway Research Program Report 480 advises highway designers to consider a variety of roadway design options. In suburban and urban areas, the capacity of most arterial-type highways is controlled by the signalized intersections. For rural corridors, intersections can also have a major impact on capacity and safety. Designs that add needed turn lanes or an additional through lane can be used to move traffic through the intersection while maintaining a nominal two-lane cross-section. These types of designs need to consider local access needs, travel speed, visibility, and other design criteria. Intersections also require identification of the type of traffic controls that will be used (e.g., signals, yield or stop signs, roundabouts). Intersection design must consider needs for left- or right-turn lanes, turn radii, and potential needs to accommodate pedestrians, bicycles, transit, or trucks. MAKERS architecture and urban design and The Transpo Group, Inc. for Puget Sound Regional Council 39

46 Roadway and Intersection Design Number of Travel Lanes Flexibility in roadway and intersection design elements can be applied to any new roadway or improvements to existing facility. For roadways, use of a three-lane roadway instead of four lanes can greatly change the characteristic of a corridor or rural Main Street. Several communities have modified four-lane arterials or highways into three-lane corridors (one lane in each direction and a center turn lane). These three-lane corridors have handled in excess of 18,000 vehicles per day while improving safety and reducing travel speeds. Figure 32. The paper Road Diets: Fixing the Big Roads by Dan Burden and Peter Lagerway makes a strong case for converting some streets from four lanes to two lanes with left-turn lanes (TWLTLs) _toolbox.doc - 1/27/2004

47 Roadway and Intersection Design Figure 32 shows that in many cases, a change from four lanes to two lanes with a leftturn lane can increase volume while providing space for sidewalks or bicycle lanes. Use of a two- or three-lane roadway instead of four or five lanes can reduce travel speeds and better integrate the highway within the community. However, a three-lane roadway may restrict the ability to carry existing or forecast traffic volumes. This can result in added delays and congestion along a route, which also tends to increase safety issues. Traffic queues may develop on the highway, or on side streets, making it difficult for traffic to enter from side streets. Traffic may divert to local streets, which can adversely impact the quality of life in neighborhoods. A community should review these issues to ensure that the potential adverse impacts are adequately addressed. Another application for using three lanes would be on the highway between rural centers. The additional lane can serve as a hill climb lane or a truck merge lane, especially in corridors with a significant number of heavy vehicles. The third lane can also be a passing lane, which may alternate from one direction to the other depending on the location in the corridor. Figure 33. Example of a three-lane passing section. Median Treatment Medians can be used to accomplish several functions, both within a rural town center or on the rural highway. Medians help separate traffic flows along the corridor, which generally improves safety. They provide the width needed for left-turn lanes at intersections, which provides for a more uniform travel corridor instead of going from two lanes to three lanes and back to two lanes. Medians also enhance pedestrian safety by providing a refuge area in the middle of a crossing. Medians can be landscaped to enhance the aesthetics of the corridor. Any landscaping must consider traffic safety needs, especially those needs related to visibility. Landscaped or other medians can serve as a transition in the highway by changing the characteristics of the highway. MAKERS architecture and urban design and The Transpo Group, Inc. for Puget Sound Regional Council 41

48 Roadway and Intersection Design Medians limit direct access/egress from adjacent properties (see Access Management section). This must be balanced with the need for and ability to provide other access, such as U-turn routes or frontage roads. Emergency vehicle access needs must also be considered before implementing a median. The design and width of a median may require some tradeoffs due to limited right-ofway. A median may limit sidewalk width, potential for incorporating a bike lane, or may eliminate on-street parking. Median design must also accommodate the type of traffic that will use the corridor. Trucks, recreation vehicles, and buses may run over medians at some intersections, if not properly designed. Large vehicles cannot make U-turns as easily, which are often incorporated with medians. Shoulder Treatment Roadway shoulders improve capacity and safety of a corridor. They provide locations for drivers to pull over in case of an emergency. In some locations, they may serve slow-moving traffic, including farm equipment or gravel or lumber trucks. Shoulders are the primary bicycle and/or pedestrian facility along rural highways. They help facilitate snow removal by providing a location for plowed snow. Different markings or materials can be used to delineate the shoulder to improve visibility for drivers, bicyclists, and pedestrians. Special signing or markings can help improve safety at locations where higher volumes of pedestrian activity are found. Roundabouts can be difficult for pedestrians since the traffic does not generally stop. Marked crosswalks, lighting, and advanced signing should be considered in designing crosswalks at roundabouts and signalized intersections. These features can be designed to compliment the overall look and feel of the corridor (e.g., pedestrian level lighting). Intersection Design and Roundabouts Intersections are critical in the design of rural highways. A well-designed intersection is clear to the driver and meets the operational characteristics of the types of vehicles that travel through it. Traffic controls such as stop signs or traffic signals can be used to assign the right-of-way for vehicles. To support specific travel patterns, additional rightor left-turn lanes can be required _toolbox.doc - 1/27/2004

49 Roadway and Intersection Design Design of intersections along rural highways takes into account the volume of traffic on the highway and on the intersecting street. The travel speeds are also critical in the safe design of intersections. The design of each intersection must consider the needs for pedestrians, bicycles, transit, or large vehicles. These factors will affect the corner radii, placement of crosswalks, application of medians, and other design treatments. For example, an intersection with a large corner radius would allow faster speeds and would better accommodate large vehicles. However, smaller corner radii would reduce pedestrian crossing distances. An option at some locations may be an island that allows a large radius but provides an intermediate refuge for pedestrians crossing the street. WSDOT and several communities in Washington and other states are using roundabouts instead of traffic signals and turn lanes at some locations. Roundabouts allow traffic to continue to flow through an intersection, thereby reducing delays. They also can improve safety. Roundabouts are designed to slow entering traffic to allow pedestrians and bicyclists to cross streets. Roundabouts can eliminate the visual clutter of overhead poles and wires. They also can serve as a gateway feature to a community to help transition from the higher-speed highway to Main Street. Roundabouts can be designed for rural or urban situations. Rural roundabouts typically have high average approach speeds. This requires additional geometric and traffic control treatments to slow traffic before entering the roundabout. Supplemental features to slow traffic may include a raised splitter, or island, approaching the roundabout. In addition, the center island may be larger than found with urban roundabouts. Roundabouts have been identified as generally being safer than other types of intersection controls. Injury accident rates are generally lower, but the number of single-vehicle accidents is higher in most studies. The improvement in safety is due to the reduction in the number of vehicle-vehicle conflict points from 32 at a four-leg intersection with stop or signal control to 8 in a four-approach roundabout. Roundabouts can reduce the delays at intersections compared to stop or signal controls. With a roundabout, vehicles, do not need to come to a complete stop when no conflicts Figure 34. Drawing of key roundabout features. Splinter islands have multiple roles. They separate entering and exiting traffic, deflect and slow entering traffic, and provide a pedestrian refuge. MAKERS architecture and urban design and The Transpo Group, Inc. for Puget Sound Regional Council 43

50 Roadway and Intersection Design Bicycle lanes through roundabouts should never be used. (Roundabouts: An Informational Guide, FHWA, 2000) exist. Delays on the main highway may increase somewhat since all approaches are treated equally. Roundabouts require more space at the intersection. This can adversely impact corner properties at the intersection. Roundabouts may, however, reduce the need for lengthy turn lanes, which would reduce the need for right-of-way further from the intersection. Roundabouts typically accommodate pedestrians with crossings around the perimeter. These crossings can be enhanced through use of a raised median, or splitter, to provide a refuge halfway across the street. The crossings need to be tied into adjacent walkways or shoulders to direct pedestrians to the desired location. Bicyclists can also be accommodated at roundabouts, similar to more conventional intersections. Bicyclists should have the option of staying in the travel lane, as any vehicle, or use the roundabout as a pedestrian. This provides for the wide range of cyclists that may use the roundabout. Bicycle lanes should not be marked through the roundabout. Trucks, recreational vehicles, and buses must be taken into account in designing a roundabout. This would typically be handled through the selection of the design vehicle, or the largest vehicle that can be reasonably anticipated. Large vehicles can be accommodated to some degree through the use of a mountable apron on the perimeter of the center island. The apron would also accommodate emergency vehicles. Roundabouts could serve as part of the transition from rural highway to town center. The transition could be outside of the town center at a major intersecting street serving the community. The roundabout would indicate a change in roadway characteristics to drivers. The center island could be used as a gateway sign or landscaping to announce the arrival at the rural town _toolbox.doc - 1/27/2004

51 Roadway and Intersection Design Examples Roundabouts The following illustrate examples of using three travel lanes instead of four and several roundabout applications Figure 35. Examples of roundabouts. Figure 36. A two-land roundabout. Resources A Policy on Geometric Design of Highways and Streets; American Association of State Highways and Transportation Officials; Flexibility in Highway Design; Federal Highway Administration. A Guide to Best Practices for Achieving Context Sensitive Solutions; NHCRP Report 480, National Cooperative Highway Research Program, Transportation Research Board; Washington D.C., Road Diets: Fixing the Big Roads ; Dan Burden and Peter Lagerway; Walkable Communities, Inc.; March Roundabout: An Informational Guide, Federal Highway Administration Publication No. FHWA-RD , June MAKERS architecture and urban design and The Transpo Group, Inc. for Puget Sound Regional Council 45

52 Access Management Description Access management is used to systematically control the location, spacing, design, and operation of driveways, intersections, or other connections to a roadway. It is intended to preserve the safety and operational efficiency of a corridor. It involves a range of design options such as medians and spacing of traffic signals. It also involves policy elements, including restrictions of left-turn movements in or out of a property. Figure 37. When the new development (in the background) applied for a building permit, the City of Duvall required that the owner share the neighbor s driveway. Access management provides a wide range of benefits. Motorists benefit from fewer conflict points, thereby reducing delays and improving safety. Bicyclists benefit from fewer driveways or left-turn movements from oncoming traffic, again enhancing safety. Pedestrians will generally have fewer driveways or other access points to cross along a route. Pedestrians can also use medians as a refuge when crossing major roadways. Transit service along a corridor can be enhanced by reducing delays and improving pedestrian access in a corridor. Application Access management plans should be developed for a corridor to assure that roadway design and land use elements work together to improve corridor operation and safety. The plans should consider how frontage or other local roads can be used to enhance the major roadway. The access management plan should involve property owners, business owners, residents, transit operators, and other affected agencies. The access management plan should evaluate access to each individual parcel as well as the traffic operations/safety along the roadways. The access management plan should be used to define the type of access controls to be applied and how policies should be defined to implement the plan. Access management is most easily implemented when a new roadway is designed and constructed. The design features of the roadway set forth the level and type of driveway access, spacing of cross streets, and type/location of traffic controls. Figure 38. Covington s median has proven to be an important safety feature. Access management should also be applied to existing corridors, especially if there is a history of safety or traffic operational issues. Access management plans for existing corridors will include a range of elements. Land use and zoning can be used to define the type and intensity of traffic within a corridor and provide limitations to the type of access _toolbox.doc - 1/27/2004

53 Access Management allowed to the major roadway. Policies requiring shared use of driveways and limitations on the number of curb cuts are examples of land use and zoning controls. The use of medians or other design treatments are also effective in improving safety and efficiency in a corridor. Medians separate opposing lanes of traffic as well as restricting turns and/or crossing traffic movements. Medians can be simple curbing or full landscaped planting strips. The type of solution will depend on the available right-ofway, volume of traffic, available budget, and other considerations. Medians are effective in retro fitting an existing corridor since they physically restrict center traffic movements. If medians are used, other accommodations need to be made for providing for the restricted access. This may be through U-turns at intersections or at openings in the median. Roundabouts can also serve part of this function. Development of frontage roads or other local circulation systems can also provide the needed property access. Simply stated, the safety and efficiency of our transportation system will deteriorate if we do not manage access... As the number of driveways increases, traffic congestion and the number of accidents will increase. (Traffic Engineering Handbook, Institute of Transportation Engineers, 5 th Edition, p. 307.) Considerations Safety Roadways with non-traversable medians are safer than those with center two-way left-turn lanes. Studies show that U-turns are also generally safer than direct left turns on multi-lane arterials. Pedestrians Access management through consolidating driveways or restricting some turn movements improves pedestrian safety by reducing the number of potential conflicts. Medians can also improve pedestrian safety by providing a refuge for crossing a roadway. Aesthetics Minimizing the number of curb cuts, consolidating access drives, and constructing landscaped medians can improve the look and feel of a corridor. Fewer access connections can increase the area available for landscaping. Transitions Medians can be used as a transition from rural highway to Main Street corridor. MAKERS architecture and urban design and The Transpo Group, Inc. for Puget Sound Regional Council 47

54 Access Management Land Use Access management can be achieved through good land use planning and integration of land use and transportation. Discouraging strip development and promoting clustering of land uses can minimize the number of access drives along a highway corridor. Development that can be served by alternative access and local circulation routes also reduces the impact on the highway. Examples Viking Avenue Corridor BEFORE: Open driveways without curbs created safety hazards and traffic congestion. Figure 39. Reducing the number of driveways was critical to upgrading mobility on Poulsbo s Viking Avenue while maintaining its role as north Kitsap s auto row. AFTER: New curbs and sidewalk with muchreduced driveways _toolbox.doc - 1/27/2004

55 Access Management Resources Access Management Manual; Transportation Research Board, Washington D.C.; Highway Access Management Access Control Classification System; chapter of the Washington State Administration Code. Land Development and Subdivision Regulations that Support Access Management, Center for Urban Transportation Research (CUTR), Tampa, FL; date not available Access Management and Highway Improvement Projects; Arthur Eisdorfer, et al; New Jersey Department of Transportation; August Main Street... When a Highway Runs Through It: A Handbook for Oregon Communities; Oregon Department of Transportation; November Traffic Engineering Handbook, Institute of Transportation Engineers, 5 th Edition, MAKERS architecture and urban design and The Transpo Group, Inc. for Puget Sound Regional Council 49

56 Accommodating Trucks and Other Large Vehicles Description Large vehicles such as trucks, buses, and recreational vehicles have different needs from operations and design perspectives compared to passenger cars or pickup trucks. These vehicles are physically larger, have slower acceleration, longer stopping distances, and larger turning radii. These all affect the design needs of a roadway. Many of the highways serving rural communities have a high volume of heavy vehicle traffic. The rural highways are the primary route for much of the gravel extraction and timber activity. The corridors also serve as primary access routes for recreational traffic, including motor homes, campers, camper trailers, and boat trailers. Planning and design of highway corridors serving high volumes of large vehicles need special attention. Between communities, the larger vehicles may result in slower travel speeds, especially where there are uphill grades. The larger vehicles make it more difficult to pass and can result in traffic backing up behind a slow-moving vehicle. Figure 40. Truck traffic. The larger vehicles also take more time to accelerate from stop conditions, which can adversely affect traffic flows within a rural town center. Stop-and-go traffic leads to more noise and air pollution as large trucks or recreational vehicles accelerate from stop conditions. The larger turn radius of these vehicles also can affect intersection designs to minimize encroachment on opposing travel lanes. Applications and Related Tools Along a rural highway, hill climb or passing lanes can be provided to allow general traffic to get past slower, heavy vehicles. These can reduce the need for a four-lane facility, minimizing the environmental impacts and costs. The addition of passing or hill climb lanes can reduce delays and improve safety. The AASHTO Design Manual provides guidelines for passing lanes. Figure 41. Safe pull-outs for buses should be considered. Other options to improve a rural highway corridor for trucks or other heavy vehicles include turnouts or allowing driving on the highway shoulders. Turnouts are widened shoulder areas that allow slow-moving vehicles to pull out of the through travel lanes if there are vehicles backed up behind it. Depending on the travel speed, length of turnout, and number of following vehicles, the slow vehicle may not need to come to a stop _toolbox.doc - 1/27/2004

57 Accommodating Trucks and Other Large Vehicles Turnouts are often used along lower volume roads or in mountain, coast, or other scenic areas. These areas may have terrain or environmental issues that limit the use of other solutions such as passing lanes. Slow-moving vehicles may also be directed to use the roadway shoulders to allow faster traffic to pass. The shoulders must be wide enough to safely handle the traffic and be structurally sound to carry the vehicle weights. These areas are generally limited to specific locations along a corridor to ensure adequate sight distances and other design features. Driving on the roadway shoulder may be limited during specific hours. As described previously, developing alternative routes is an option for reducing the impacts of trucks within a community. However, these are not always feasible due to cost or other impacts. Where trucks travel through a town center on a highway, major impacts can result. Synchronizing traffic signals can help reduce delays and the impacts of heavy vehicles within a rural town center. Minimizing the number of times a truck must stop and start up along a corridor can help reduce the noise and air quality impacts of trucks associated with acceleration. Another advantage can be reduced travel speeds. Considerations Intersection Design Truck, buses, and other large vehicles have larger turning radii. The design and width of travel lanes, turn lanes, turn radii, and traffic controls must accommodate these needs where a significant volume of traffic is heavy vehicles. If designs do not accommodate the larger vehicles, then these vehicles will result in additional delay and safety problems. For example, if a turn radius is too small, then a truck or recreational vehicle will need to make several maneuvers to make a turn. This will affect through and local traffic as well as pedestrian flows at the intersection. Figure 42. The turning radii of trucks and other large vehicles must be accommodated in roadway and intersection designs. Transitions Since large vehicles require more time/distance to slow down or stop, transition zones should be designed to reflect their needs. MAKERS architecture and urban design and The Transpo Group, Inc. for Puget Sound Regional Council 51

58 Accommodating Trucks and Other Large Vehicles Alternative Routes Depending on the specific issues and volume of traffic and large vehicles, alternative routes such as bypasses, frontage roads, or secondary roadways can be used to reduce the impact on Main Street. Pedestrians Larger radii or wider travel lanes will result in longer distances for pedestrian crossings. To offset this, major pedestrian crossings can be located at intersections where there are lower volumes of trucks making turns. Turn radii at curbs or curb extensions must accommodate typical truck activity or trucks may run up on the curb, greatly reducing pedestrian safety. Medians Design and implementation of medians must take into account the level and type of truck/recreational vehicle traffic. Trucks or other large vehicles may have difficulty making U-turns to access developments on the other side of the street. Larger vehicles may drive up on medians, resulting in damage to the median, landscaping, or to the truck. Figure 43. Minimum bus stop dimensions from Guidebook, WSDOT, et al. ν On-Street Parking and Sidewalks Impacts of large vehicles can be reduced by providing more physical separation. Onstreet parking, wider sidewalks, and landscaping will separate the trucks from pedestrians and adjacent land uses. Resources A Policy on Geometric Design of Highways and Streets; American Association of State Highways and Transportation Officials; 2001 Flexible Design of New Jersey s Main Streets; Reid Ewing and Michael King. Main Street... When a Highway Runs Through It: A Handbook for Oregon Communities; Oregon Department of Transportation; November options&innovationstoolkit_jan2004-kcedit.doc - 2/3/2004

59 Accommodating Pedestrians and Bicycles Description Providing for safe, comfortable walking involves different strategies, depending on whether or not the area in question is inside or outside a town center. Inside a town center, the general approach is to provide adequate sidewalks, street crossings, and pedestrian amenities throughout the area and set speed limits that allow safe street crossings. Design elements typically include curb extensions (sidewalk bulbs), marked crosswalks, curbside parking, and pedestrian amenities. Outside the town center, pedestrian facilities are targeted to those few areas where higher pedestrian volumes are expected, such as around schools and bus stops and near the town center, and where walking is unsafe due to narrow shoulders, poor visibility, or other condition. Designing for bicycles along the roadway, where a separated bicycle trail is not practical, means ensuring that there is a bicycle lane at least 5 feet wide or at least a wide shoulder. Restricting driveways and ensuring clear sightlines along the roadway are also important for both pedestrians and bicyclists. Applications and Related Tools Safe pedestrian movement is essential for town center vitality and is an important part of upgrading main streets. (See Enhancing Main Streets beginning on page 63.) Spot pedestrian safety improvements in the rural sections of highways are also important and can upgrade the corridor s performance in terms of vehicular mobility. Bicycle lanes and widened shoulders along rural corridors can often be accommodated at minimal expense to provide both a recreation and transportation resource, especially when planned as part of a comprehensive system. Considerations and Techniques Safety and Visibility Of course, these are of utmost importance. In some cases, safety concerns may warrant speed reduction and/or signalization. (See Speed Management and Street Classifications section in Planning Tools, page 16.) Safe street crossings should be provided at strategic points. In pedestrian-oriented areas (areas where substantial pedestrian activity is projected or is encouraged in comprehensive planning or Figure 44. Although it may be impractical to install walkways all along a rural highway, provision for safe pedestrian movement is necessary in areas where pedestrians are expected, such as this one situated between new residential development and the Black Diamond town center. MAKERS architecture and urban design and The Transpo Group, Inc. for Puget Sound Regional Council 53

60 Accommodating Pedestrians and Bicycles Medians or Crossing Islands Recent research has found that raised medians significantly reduce pedestrian crash rates on multilane urban arterials. Medians allow pedestrians to deal with one direction of traffic at a time, and to cross half way rather than having to wait for a gap in traffic in both directions. Where continuous medians cannot be provided, short crossing islands will perform as well or better. (Flexible Design of New Jersey s Main Streets.) subarea policies), roadway design should provide for safe pedestrian circulation outside the vehicular movement clear zone. Roadway and Intersection Design Sidewalks or separated walkways should be provided in pedestrian-oriented areas. Curb extensions (sidewalk bulbs) should be considered at intersections where pedestrian crossings are expected. Mid-block crosswalks can be useful in some instances and should be clearly marked and visible. Medians are encouraged to provide pedestrian refuge. Pedestrian connections into the surrounding areas (generally perpendicular to the highway corridor) are often forgotten but are very important in completing the circulation network. Landscaping and Amenities Creating a pleasant pedestrian ambience is important on main street projects and around pedestrian focal points. It is important to make sure that such elements do not reduce visibility. Generally, low shrubs and trees limbed above 10 feet are fine. Sidewalk Widths The desirable width of a sidewalk, particularly in a pedestrian-oriented area, depends on the activities and features that are expected. The Oregon Department of Transportation s handbook, Main Street... When a Highway Runs Through It, identifies the following minimum widths for various activities: 8 feet Transit shelter or ADA 5 feet Outdoor dining tables platform 3 feet Bench 5 feet Transit stop with bench 3 feet Window shopping 5 feet Two-way pedestrian traffic 2 feet Miscellaneous street furniture 5 feet Wheelchair turning area 2 feet Shy distance from walls, poles, 5 feet Planting strip (3-foot minimum) etc _toolbox.doc - 1/27/2004

61 Accommodating Pedestrians and Bicycles In general: An 8-foot sidewalk barely allows two-way pedestrian traffic and a 3-foot street furniture area. A 10-foot sidewalk gives more breathing room. A 12-foot sidewalk adds opportunities for outdoor dining, displays, planters, and window shopping. Additionally, a 12-foot sidewalk allows two couples to pass each other comfortably and tree pits to be at least 9 feet from the building wall, reducing conflict with awnings and building fronts. A 15-foot sidewalk allows room for a transit shelter and high levels of pedestrian activity. Bicycle Lane Width Generally, all on-street bicycle lanes should be at least 5 feet wide. However, a 3- or 4-foot shoulder can improve safety for bicyclists even though it cannot be classified as a bike lane. Providing a continuous lane, shoulder, or trail in transition areas, where lane configuration varies, and at intersections is critical. Pedestrian and Bicycle Design: When in Doubt, Work It Out! There are many handbooks and manuals with specific numerical standards for bicycle and pedestrian facilities. However, the design of these facilities often involves dealing with unusual contexts or needs. In these cases, it is important to identify pedestrian/bicycle needs based on observed behavior patterns and basic human tendencies. Understanding how pedestrians move in restricted conditions, typical travel speeds and average trip lengths, children s walking patterns, etc., for example, can lead to a more effective design. So, while rules of thumb and recommended standards, like the ones provided here, are useful as a starting point, a good designer considers the unique aspects of local conditions, circulation objectives, and likely behaviors of the project. Two resources that discuss pedestrian behaviors in terms useful for designers are Accommodating the Pedestrian by Richard K. Untermann and the WSDOT Pedestrian Facilities Guidebook. Figure 45. Don t forget school areas! The Pedestrian Facilities Guidebook includes an excellent section on children and school zones. (See Toolkit 3 in that document.) MAKERS architecture and urban design and The Transpo Group, Inc. for Puget Sound Regional Council 55

62 Accommodating Pedestrians and Bicycles Bikes and Facilities: Existing Lanes, Shared Lanes, and Separate Bike Lanes Providing safe bicycle routes on heavily traveled corridors with limited cross-sections can be difficult. Designers are often faced with the choice of providing a wider lane or dedicated bicycle lane with less sidewalk or encouraging cyclists to bicycle with traffic on existing lanes. This gives rise to the question of where is bicycle movement compatible with vehicular traffic? This compatibility depends primarily on the speed and volume of vehicular traffic. The New Jersey Department of Transportation has developed the following table to indicate at what speeds and traffic volumes (vehicles per day) bicycles are compatible with vehicular traffic on existing lanes (bicyclists riding with traffic on shared 12-foot lanes), shared lanes (curb lanes widened to 14 to 16 feet for bicycle movement), and bicycle lanes (striped bicycle lane at least 5 feet wide on the outside of the vehicular lanes). The chart indicates, for example, that a shared lane may be appropriate where there are fewer than 10,000 vehicles per day traveling less than 30 mph, but that a separate bicycle lane is recommended if either speed or volume is much higher. Facility 20 mph 25 mph 30 mph 35 mph Existing Lane <2,000 <2,000 <2,000 <1,200 Shared Lane 2,000-10,000 2,000-10,000 2,000-10,000 1,200-2,000 Bike Lane >10,000 >10,000 >10,000 >2,000 Bicycle trails are an important recreational resource and can be a valuable transportation element if the trails are connected in a network. The isolated portion of Snohomish County s Centennial Trail shown in Figure 46 would be much more valuable if linked to other systems. Safe road crossings are key to the project s use by children and families. Figure 46. Centennial Trail, Snohomish County _toolbox.doc - 1/27/2004

63 Resources Accommodating Pedestrians and Bicycles Pedestrian Facilities Guidebook: Incorporating Pedestrians into Washington s Transportation System, Otak for WSDOT/PSRC/CRAB/AWO, 1997 MAKERS architecture and urban design and The Transpo Group, Inc. for Puget Sound Regional Council 57

64 Transition Area Physical Improvements Description As noted above, transition areas are the sections of corridor between rural land uses and those of the town center; essential a rural town s outskirts. Communities have facilitated a smoother transition in terms of street character and traffic management through a number of physical improvements, including gateways, colored pavements, lane alignments, and roundabouts. Transition areas are excellent opportunities to employ passive traffic management techniques as noted in the Speed Management and Street Classification section. Applications and Related Tools Although the most common use of transition area design tools has been on the edges of town centers, there may be other applications where design speed and roadway character change abruptly, such as the more congested intersections, special activities (schools, hospitals, etc.), or areas with restricted visibility. Related tools include transition area planning, access management, and roadway design. Considerations and Techniques Effective transition area design often requires a sequence of elements. Because the goal is to safely transition speed gradually, corridor designs for transition areas often require two or more elements added sequentially as the motorist nears the town center. For example, a transition might start with a flared lane alignment leading to a landscaped median and then the replacement of shoulders with a curb-gutter-and-sidewalk street edge. Somewhere in the mix, view-framing street trees, colored shoulders, and a gateway might be added. Such a system might take several hundred feet or so along the corridor, so it is good to plan for these elements early in the design phase and identify the preferred locations. Figure 47. Colored shoulders are recommended by ODOT s Main Street... When a Highway Runs Through It. Colored Shoulders The Oregon DOT publication, Main Street... When a Highway Runs Through It, identifies colored shoulders and bike lanes as particularly good transition area treatments because they narrow the lane width as perceived by drivers. Painting _toolbox.doc - 1/27/2004

65 Transition Area Physical Improvements shoulders or using concrete paving are traditional ways to accomplish this, but new colored asphalt pavements offer a useful option. Medians A gradually expanding median is an especially useful transition mechanism because not only does it visually notify drivers that they are entering a different condition, the slight alignment change needed for the median serves to slow down traffic. Medians should be at least 5 feet wide to provide for landscaping; 8 feet is generally needed for trees. WDOT has new standards for median curbs. Contact the local WSDOT office for details. Landscape Plantings Street trees and low shrubs outside shoulder areas and in medians are another subtle visual clue to drivers. Gateway Features Towns have used gateway signs, artwork, or signature landscaping as their welcoming devices for decades, and these elements can reinforce a community s identity as well as serve a speed management function. Banners are an excellent gateway element, and two well-designed and appropriately located vertical elements can provide easy installation. Roundabouts and Special Intersections Roundabouts, by their very nature, manage traffic speeds. They also provide locations for gateway artwork and special landscaping. (See the discussion on roadway design above.) Figure 48. A gateway element in Lake Oswego. Resources Main Street... When a Highway Runs Through It: A Handbook for Oregon Communities (November 1999)page MAKERS architecture and urban design and The Transpo Group, Inc. for Puget Sound Regional Council 59

66 Providing Parking On-Street Parking On-street parking is normal, necessary and expected in most downtown business areas, including main streets. (Main Street... When a Highway Runs Through It, page 44, Oregon Department of Transportation.) Where on-street parking is provided, curb extensions should be constructed at regular intervals. These are used to define and protect parking bays, shorten crossing distances for pedestrians, and provide space for trees, street furniture, and bus stops. Curb extensions, often referred to as bulb-outs, are basic features of good shopping streets. Despite business concerns about loss of onstreet parking, literally hundreds of traditional shopping streets around the U.S. have been improved with bulb-outs. (Flexible Design of New Jersey s Main Streets.) Description The provision of parking is particularly important to a rural town center s vitality. Even though concentrated development may be encouraged in the town center, most people will visit the core by automobile. Public parking can either be on-street (parallel or angled parking along the curb) or off-street (generally in public parking lots.) Private parking should also be set by parking requirements, typically specifying the number of stalls per 100 square feet of commercial space or per dwelling unit of residential development. And, parking lot standards should include requirements for location, access, internal circulation, lighting, and landscaping. Applications and Related Tools Public parking, particularly on-street parking, is useful in town centers. Outside town centers, on-street parking should be minimized in favor of parking lots. Considerations and Techniques On-Street Parking On-street parking is a boon to business owners and makes a street more pedestrianfriendly because it shields walkers from moving traffic. However, on-street parking along busy corridors can slow traffic. Angled or diagonal parking is not recommended on highways or major arterials because it can be hazardous unless extra lane width is provided for visibility. Parallel parking spaces on corridors should be at least 8 feet wide with clearance for bicyclists. Curb extensions or sidewalk bulbs at intersections are recommended to protect parked cars and improve pedestrian safety. Parallel or angled parking along side streets is especially recommended because it avoids conflicts along the corridor. Some rural towns have located parking along alleys parallel to the highway corridor. This can be quite effective if directional signs are provided. North Bend, for example, added much-used parking to nearby alleys _toolbox.doc - 1/27/2004

67 Providing Parking Public Parking Lots Especially active town centers often need more parking than can be provided on the street. In these cases, it may be advisable to secure a centrally located, well-signed public parking lot. The Town of Winthrop in eastern Washington has developed a parking lot at the town s entry. There is a ranger headquarters, a picnic area, nearby restrooms, and a pleasant two-block walkway leading visitors into the downtown. Best Idea: Parking Management Lack of sufficient parking is a common complaint among business owners. But, upon examination, local business districts often find that the parking they have is underutilized. Since parking is expensive and consumes space, local communities should first get the most out of what they have before adding new parking. A detailed parking survey and utilization study are a good place to start. Once the deficiencies are noted, there are a number of low- to no-cost solutions that should be considered, including: Restripe on-street parking. Often the old striping is laid out to outdated standards. Often loading zones, driveways, and other no-parking zones can be reduced, consolidated, or eliminated. Provide signs directing drivers to available, less visible stalls and lots. Coordinate private lots. Many times, consolidating smaller private parking lots and reducing driveways can add a significant number of stalls and greater flexibility of use. This is also a good access management strategy. Set time limits for appropriate turnover. Direct staff not to park in the most desirable stalls. Consider allowing parking in curb lanes (on streets with four or more lanes) in non-peak traffic hours. This requires prompt removal of cars left in the lanes during peak volume times. Figure 49. North Bend parking with curb extension and pedestrian crossing. Figure 50. Use of Alleys in North Bend. MAKERS architecture and urban design and The Transpo Group, Inc. for Puget Sound Regional Council 61

68 Providing Parking Other Examples Winthrop Figure 51. Winthrop s public parking, located just outside the town center and connected by a short trail, has proven effective. Resources Creating Liveable Streets: Street Design Guidelines for 2040, pages 38, 39, second edition, 2002, Metro, Portland, OR _toolbox.doc - 1/27/2004

69 Enhancing Main Streets and Promoting Town Redevelopment Description Main street programs are comprehensive improvement efforts to enhance the economic vitality, historic character, and pedestrian ambience of existing small towns while promoting effective vehicular circulation. Some main street programs are undertaken as part of the State s Main Street Program as administered by the Washington State Office of Trade and Economic Development, while other, similar efforts are initiated by the local communities themselves or are part of a county s subarea planning. Most effective main street programs include both street improvements and efforts to upgrade businesses, buildings, public amenities, and other infrastructure. Main street improvements along rural corridors generally include pedestrian walks and crossings, streetscape and landscape elements, and on-street parking, as illustrated in Figure 52. Applications and Related Tools Main street improvements are generally restricted to existing town centers lying on or near highway corridors, although some of the ideas can be successfully applied to new town centers, as in the case of Juanita Village, Redmond Town Center, and Mill Creek Town Center. Besides enhancing business vitality, pedestrian conditions, and historic streetscapes, main street improvements, if properly configured, can be a part of efforts to facilitate vehicle movement (including trucks and buses; see the Accommodating Trucks and Other Large Vehicles section on page 50), manage speeds, ease congestion, and improve safety. Figure 52. Typical corridor improvements along a town center s main street. (Source: Main Street... When a Highway Runs Through It) Context-sensitive design tools discussed elsewhere in this document that can be used in main street improvements include: Access Management Pedestrian Improvements Roadway Designs Accommodation of Trucks and Buses Parking Main Street Improvements MAKERS architecture and urban design and The Transpo Group, Inc. for Puget Sound Regional Council 63

70 Enhancing Main Streets and Promoting Town Redevelopment Considerations and Techniques Speed and Congestion Management Because pedestrian levels and turning movements are greater in older downtowns, vehicle speeds should generally be lower. Twenty miles per hour is a general average. However, the improvements should not cause general congestion of the corridor, and other tools, such as access management, progressive signal timing, local street improvements, and auxiliary routing, should be considered to ensure that traffic flows smoothly. Figure 53. Effective main street improvements include pedestrian amenities, lighting, safe crossings, landscaping, parking,and entry features as well as vehicular traffic improvements. Figure 54. Effective design guidelines for rural communities focus on a few key features that respond to a community s desired character, as in the case of this example from Eatonville. Parking Although on-street parking is usually desired on main streets, parking lots or off street parking may need to be added to avoid congestion. Consider the full range of parking options, as noted in the Providing Parking section on page 60. Pedestrian Crossings Safe pedestrian crossings are critical in a downtown. The manual Flexible Design of New Jersey s Main Streets recommends a crossing about every 300 feet or so. Sidewalk extensions (curb bulbs) increase pedestrian visibility and safety. Sidewalk Improvements and Landscaping Street trees can be a most cost-effective way to visually upgrade an older downtown. Pedestrian improvements, attractive lighting and paving, and street furniture have proven to be economically beneficial to small downtowns. However, these elements must be carefully designed to avoid high maintenance costs. Street improvements should be supported by design standards that direct new developments to provide pedestrian-oriented facades, limit driveways, and generally fit with the community s desired design character _toolbox.doc - 1/27/2004

71 Enhancing Main Streets and Promoting Town Redevelopment Design Standards for Town Center Main Streets The Transportation Policy Institute team that prepared the Flexible Design of New Jersey s Main Streets recommended the following general design standards for town center main streets. They should be used as a starting point only and revised as necessary to fit local conditions. Standard Travel Lanes 11 feet. Shared Lanes 14 feet (or 13 feet with an edge line and one-foot offset). Bike Lanes 5 feet, for use at higher traffic volumes and speeds. Parking Lanes 8 feet on traditional shopping streets. Sidewalks 5 feet, sized to provide public space and avoid crowding. (Note that this is a minimum clear zone width. Sidewalks should be at least 10 feet, and preferably 12 to 15 feet, from curb to building face in town centers.) Medians or Crossing Islands 6 feet and raised or not at all. Shoulders Never on main streets. Vertical Curbs Always on main streets. Clear Zones AASHTO minimums for curbed sections. Edge Lines In rural hamlets and suburban settings. Pedestrian Crossings Every 300 feet or so; at all controlled intersections and other locations with special treatments. Corner Radii Effective inside radii of 15 feet at minor cross streets, 25 feet at major streets. Traffic Signals Timed for 60-second maximum pedestrian wait. Transitions Outside of Town The entry points just on the outskirts of downtowns (transition areas) should moderate traffic speed of vehicles into downtown and also provide the visitor an attractive introduction to the business district. The Planning of Transition Areas section on page 58 provides some additional guidance on this feature. MAKERS architecture and urban design and The Transpo Group, Inc. for Puget Sound Regional Council 65

72 Enhancing Main Streets and Promoting Town Redevelopment Examples Main Street Improvements Figure 55. One strategy for town center development is to cluster small businesses off the main highway with combined parking and access, as in this University Place example. Figure 56. The street improvements in downtown Kingston successfully eased ferry traffic congestion, facilitated local traffic movement, and created a pleasant pedestrian environment. The community later established design guidelines administered by the county and is currently working with WSDOT to build a remote parking/ferry holding area. Figure 57. Woodinville is enhancing its main street through the construction of a park and design standards that require buildings to face the street front. Resources Building Projects that Build Communities, Washington State Department of Transportation, 2003 ( This handbook provides a guide to cooperative local/state street improvement projects with many examples of small town main street programs. Main Street... When a Highway Runs Through It: A Handbook for Oregon Communities (November 1999) page _toolbox.doc - 1/27/2004