Written by the Daniel Rodriguez, Semra Aytur, Kelly Evenson, and David Salvesen, with input from the NCPAPRC Advisory Board

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1 Elements of a High Quality Pedestrian Master Plan Supported through the North Carolina Physical Activity Policy Research Center (NCPAPRC), funded by the Centers for Disease Control and Prevention (CDC) cooperative agreement #U48-DP Written by the Daniel Rodriguez, Semra Aytur, Kelly Evenson, and David Salvesen, with input from the NCPAPRC Advisory Board I. Background The North Carolina Physical Activity Policy Research Center (NCPAPRC; more information at is undertaking a project to examine how local policies are being used to make environments more walkable and supportive of pedestrian activity. One policy tool is the development, adoption and implementation of pedestrian master plans (PMPs). A pedestrian master plan (PMP) is a public document developed through public participation, visioning, and analysis of current conditions, laying out a community's vision for future pedestrian activity, identifying the actions required to make that vision happen, tying actions with funding sources, and committing agencies and stakeholders to its implementation and use. Despite the importance and potential usefulness of PMPs, there is little guidance on what the plans should contain. As part of the project, the NCPAPRC research team developed this document to identify and describe the elements of high quality PMPs. The document has benefited from feedback received from the NCPAPRC Advisory Board. It is being disseminated to request feedback and to inform the work of planners, advocates and researchers. In the future we plan to revise the elements based on comments received, expand our description of each plan element, and provide specific examples highlighting best practices. II. Introduction While PMPs are documents tailored to local needs and aspirations, there are accepted principles that can serve as criteria for determining what makes a good plan. Most planners can identify good PMPs from bad ones, but general characteristics of good plans are rarely abstracted. Identifying features of good plans is important because future plans, and plan updates, could benefit greatly from this information. Furthermore, good or high quality plans strengthen their ability to influence outcomes. High quality plans have been related to improved outcomes in the context for hazard mitigation, environmental management, 4 sustainable development, 5 and physical activity 6. Although PMPs can promote a vision and guide future priorities and investments, it is unrealistic to expect that every locality will have a plan. It is similarly unlikely to find communities with little interest in pedestrian activity, but with a good pedestrian plan. For those communities, significant progress towards supporting pedestrian activity may involve small gains, such as having policy statement regarding the desirability of promoting land uses and environments to support pedestrian environments, or introducing tools in a comprehensive plan that can be used to improve the quality of development for pedestrians. When a community is further along in considering pedestrian activity as a higher priority, a more complete treatment of the community s vision for pedestrians, current conditions, needs, policies and implementation is expected. This complete treatment can be consigned in a stand-alone document, like a PMP, or in a document that contains various plan types, like a community s comprehensive land use plan, transportation plan, or a combined pedestrian-bicycle plan. The way in which a community codifies and presents its pedestrian priorities is less important than the content of the document and page 1

2 how it was developed. Regardless of whether priorities for pedestrians stand alone in a PMP or as part of a broader plan, we can identify key qualities that characterize a good plan. This document serves as a starting point for identifying the elements of high quality PMPs. We rely on the plan quality literature that has developed over the last 10 years to identify desirable elements of PMPs Researchers have identified conceptual dimensions that define the quality of different components of a plan, including the quality of goals, policies and the fact base. Others have included additional dimensions of plan quality such as quality of communication, guidance for implementation, and procedural validity (including community participation and buy-in). 7 At a more practical level, guidance in how to develop PMPs has been provided by sources such as the North Carolina Department of Transportation Bicycle and Pedestrian Planning Grant Initiative 11 and the Florida Department of Transportation 12. III. Plan elements We divided the main elements of a high quality plan into the following five sections: Presentation of Plan Contents Vision, Goals and Policies Information Base and Content Plan Proposals Implementation Below we discuss the elements belonging to each section. Although some elements span more than one section, they were assigned to only one section. Presentation of Plan Contents Element: Although a PMP is more than a set of maps and tables, a good plan contains maps and tables that are clear and readable. They convey current and proposed conditions and investments without the need to read accompanying text. For maps, key landmarks and locations where activity concentrates (like employment centers, commercial centers and schools) should be clear. Maps of the following are necessary. Current non-motorized facilities (pedestrian and bicycle) Major land uses and pedestrian attractors such as parks and schools Major motorized transportation facilities like freeways, state roads, and rail and bus routes, including transit interface locations. Priority areas or corridors for projects, investments or treatments, because of actual or perceived concerns. Location of proposed projects relative to key landmarks and existing transportation facilities Maps overlaying the spatial location of relevant infrastructure and land use changes, such as planned roads, schools, or key elements of a capital improvements plan. The power of maps, as visual displays of information should not be underestimated. For example, a map of sidewalk locations can be especially useful to identify missing segments that hamper sidewalk continuity and connectivity. Furthermore, a simple map page 2

3 showing sidewalks but excluding roads may raise awareness of the importance of infrastructure supports. Such map forces the reader to consider whether moving around town without a vehicle is feasible, highlighting gaps and areas of need. Element: A PMP contains an explicit time horizon. The horizon determines the point in time in which a desirable vision is to be realized through the pedestrian investments detailed in the plan. Furthermore, the horizon determines the extent to which certain supporting policies and plans, such as the land use plan or planned road projects, can be used to complement the priorities identified in the plan. Vision, Goals and Policies Element: A PMP contains a vision or visions of what pedestrian activity would be in the future. These visions provide a graphic, inspirational view of what citizens want their community to be in the future. Visions can refer to a future state of affairs of residents or the community, such as improved well-being, livability or safety. Visions can refer to future conditions of a community s infrastructure such as having a viable and wellconnected pedestrian transportation system, or connecting major activity nodes for existing and future pedestrians. Visions also can refer to aspirations regarding pedestrian travel such as prioritize the movement of pedestrians in a community. Element: A PMP provides clearly articulated goals, including long and short range goals to be achieved, ways to measure them and who is responsible for their achievement (see Implementation section below). Goals can be initially identified as parts of visions, but can be followed up by more in-depth analysis of needs and aspirations. They may be disaggregated by population group (age group, motorization status, disability status), transportation domain (safety, access, etc.) or land use domain (access to schools, parks, retail). Specific goals may include one or more of the following: Enhance quality of life Improve access and mobility Improve personal health Encourage physical activity Enhance safety (reduced injuries/accidents) Protect or preserve the natural environment Promote social equity Create a balanced transportation system Reduce traffic congestion Support non-automobile travel Enhance pedestrian network connectivity (both local and regional) Expand opportunities for recreation Improve coordination among local governments and between local, regional, and state governments Promote specific development patterns Promote economic development Support historic preservation/ cultural values Improve or maintain existing facilities Enhance aesthetics and community appearance Instigate a cultural and attitudinal shift to accept pedestrian travel. Goals may be mandated by state and federal policy which the local government is legally or politically bound to implement (such as vehicle miles traveled reductions). page 3

4 Plans should also contain numerical indicators of goals. Such indicators can be used to assess whether goals are being achieved in a timely manner. Often these indicators are labeled objectives. When indicators cannot be identified, or when goals are poorly measured by indicators, a more detailed, qualitative description of what constitutes successful achievement of a goal is necessary. A time horizon for goals should be provided. Element: The goals in a PMP should be reasonably achievable with the policies proposed in the plan. Answering the question: Can the policies identified in the plan achieve the goals outlined? If a policy is not efficacious, more suitable policies or revised goals are necessary. Information Base and Content Element: A PMP reviews previous pedestrian planning efforts in the area. PMPs also should document the events, individuals, and groups that prompted action towards the plans creation and completion. This provides an institutional memory of the activities preceding the development of the plan. Individuals and organizations consulted in the creation of the plan also must be documented (see next element). For previous pedestrian planning efforts: Major plans, including related plans such as a transit plan, greenway plan, regional transportation plan (from Metropolitan Planning Organizations, Rural Planning Organizations and/or Councils of Governments), or a land use plan, if they covered pedestrian issues Spot and corridor projects Agencies involved Involved citizen groups Individual champions Events and individuals prompting the PMP: Funding availability Safety concerns Need for health or community impact analysis Rapid growth Disagreement about pedestrian project priorities Need for policy document to guide future investments and coordination with other community activities Individual or citizen group involvement Leadership from elected officials Element of State s Department of Transportation Comprehensive Transportation Plan Element: A PMP should mention the public participation and consultation strategies undertaken and stakeholders involved. Public participation strategies Public meetings Call-in phone numbers or websites Surveys Advocacy campaigns page 4

5 Charettes Community meetings Informal meetings Focus groups Newspaper article review Citizen complaints/participation Historical data on pedestrian demand and crash data Websites and blogs listservs Staff presentations / discussions with local appointed boards and committees Involved groups Professionals (planners, engineers, consultants, health promoters, etc.) Advocacy groups Committees composed of citizens and appointed and elected officials Agency staff at the local and state levels (land planning, transportation, parks and recreation, law enforcement, health, schools, etc) Elected officials Users Private sector perspective and interests Foundations Local non-profit groups Element: A PMP should inventory and assess current characteristics of motorized transportation infrastructure (road and transit) relative to pedestrians needs and the needs of different subpopulations (children, those with mobility impairments, etc). Road The location and characteristics of intersections, on-road pedestrian facilities, pedestrian bridges and culverts should be assessed. Transit Ability to get to transit stops, shelters and street furniture, sidewalk leading to stop, paved landing, bus bay, way-finding signs, lighting. Element: A PMP should assess current characteristics of land use system relative to pedestrians. The land use system analysis should identify areas where pedestrian travel activity can concentrate, such as employment centers, schools, health centers, shopping centers, parks, and residential areas. The relevance of the land use system can vary depending on the type of pedestrian travel: for utilitarian/transportation or for recreation/leisure purposes. For example, residential areas of low density are less likely to have concentrated utilitarian trips by pedestrians, but may be as likely to have leisure pedestrian travel. Element: A PMP should provide an inventory of existing pedestrian facilities (on-road and off-road), including the location and presence of crossing aids (for example crosswalks, pedestrian signals, yield to pedestrian paddles, curb extensions, crossing warning signs, and lights) and curb ramps. Pedestrian facilities also should be evaluated for ADA compliance. Preferably, this inventory also should be displayed in a map. page 5

6 Together with the two previous elements (transportation and land use system), the inventory of pedestrian facilities provides a building block for identifying problems of access, connectivity between major origins and destinations, gaps, natural barriers (steep terrain, water features), physical barriers (cul-de-sac or unconnected development; obstacles on facility), and hazards (poor lines of sight or obstructions, narrow lanes, high traffic speeds). Characteristics of pedestrian facilities include: Physical location Physical characteristics (lateral clearance, quality of surface) Maintenance status Adherence to current standards (Width, grade, curvature, sight distance, markings, bridge and culver requirements, intersection treatments) Current demand (by peak and non-peak hour) Connectivity Element: A PMP should review all relevant local, state and federal plans, projects, and guidelines related to pedestrian planning. This allows for identifying interdependent actions that can affect, and be affected by the PMP. Approved plans, or draft plans, at the local, regional and state levels can include: Greenway plans Parks and recreation plans Pedestrian plans Bicycle plans Comprehensive land use plans Neighborhood or area-level economic development plans Transit plans Capital improvement plans Regional and state comprehensive transportation plans for the community Federal and state level policies and guidelines Formal projects and guidelines can include: State Department s of Transportation and Federal Highway Administration policies and guidelines Area wide transportation projects contained in the transportation improvement program (TIP) or the capital improvement plan (CIP), including an update of their project development stage. Street design guidelines Safety and education programs (school-based programs, faith-based programs, local agency initiatives, youth-organization programs, etc.) Law enforcement programs (enforcement of jaywalking, of yield to pedestrian signs, traffic speed, etc.) Ongoing promotional or encouragement programs (ozone day, earth day, bike on bus, health promotion challenges, Walk to School Day/Month and advocacy initiatives, etc.) School zone requirements for local schools (or lack thereof) State requirements and guidelines on the presence of facilities (for example State Department of Transportation adopted guidelines for pedestrians or policies for sidewalks on bridges or along roads) Ordinances such as subdivision ordinances, zoning, and concurrency requirements page 6

7 Element: A PMP should summarize the main findings and concerns identified through the analysis of pedestrian facilities, the transportation system, the land use system, and current and potential pedestrian demand. Element: A PMP should contain typical pedestrian facility design considerations and treatments, including cost estimates. These provide the universe of facility improvements from which the plan selects desired improvements. They may be included in the body of the plan or in an appendix. Plan Proposals Element: A PMP should identify policies, projects, and guidelines to address needs and deficiencies identified in the fact base of the plan. Similarly, the plan should identify policies that may be hindering pedestrian activity and focus on the actions needed to alter the policies. Suggested actions should contain an implementation horizon (short, medium or long-term) corresponding to the urgency and funding available. Actions also should be tied spatially to corridors, areas or distinct spots. Link-based facilities and improvements (physical projects) New pedestrian facilities (e.g., sidewalks, trails) Retrofitting or upgrading existing pedestrian facilities Intersection treatments (e.g., curb cuts, signalization, crosswalks, mid-block crossing, median refuges, bulb-outs) Spot treatments (e.g., surface improvements, right of way drainage issues, removal of obstructions, pedestrian signals) Streetscape improvements (lighting, planting, buffering) Pedestrian way-finding aides and markers Policy changes include Funding changes How pedestrian projects get evaluated or compared against other transportation projects Traffic-calming initiatives Transit interface enhancements Infrastructure maintenance program Firms and developers: enhancing on-site pedestrian access from developments to curbside, and enhancing off-site access to connect to existing sidewalks. Land use planning interface: encouraging urban development that is pedestrianfriendly through land use plans and zoning ordinances. Requiring that site plans consider PMP priorities. Land development assessment including the creation of a referral program in which development plans get reviewed according to the PMP priorities. Programs and encouragement Incentive programs (e.g., parking cash-out) Commuter alternative programs Cultural, recreational and health-related programs to promote walking Programs are organized on-going activities that engage individuals in physical activity either directly or indirectly. Education page 7

8 School-based (for example Safe Routes to School, Walk to School Day/Month) Driver-based Pedestrian-based Professional development for planners, engineers, and health department staff Advocacy training Public awareness and encouragement Enforcement Training for law enforcement officers to focus on pedestrian-related safety issues Enforcing laws and regulations Development of enforcement programs (such as pedestrian sting operations) Element: PMPs may contain special focus areas and unique opportunities. Special opportunities include major road improvements that could result in complementary investments in pedestrian facilities. Another example is to establish a line item in the local budget to address specific local needs. A final example is funding that could be tied to special populations (such as safe routes to school program, or federal funding to improve the environment around retirement homes). Implementation Element: A PMP should prioritize among the recommended actions identified in the plan. The criteria used for prioritizing investments should be stated clearly. Element: A PMP should identify partners interested in the implementation of specific actions. Partners can include other local agencies (land use planners or parks and recreation planners, for example), state agencies (State Department of Transportation, State Health and Human Services / Public Health Department), federal agencies (Centers for Disease Control and Prevention, US Department of Transportation), nonprofits, private organizations and advocacy groups among others (see public participation element). The role of partners in the implementation of specific actions, and their timeline, should be provided. Element: A PMP should consider the cost and feasibility of the recommended actions. High priority actions should be accompanied by proposed resources to make them come to fruition. This includes identifying individuals responsible for action, proposing staffing or other resource changes, determining funding strategies for each action, and developing a timeline of tasks. Element: A PMP should detail how plan-based follow up will occur. For example, when will plan updates occur? Who is responsible for calculating and updating the indicators of achievement? IV. Next steps A next step is to develop a coding protocol that would allow us to measure key elements of plan quality for PMPs in NC. However, we don t want to measure every single dimension, since this would be a tremendous overtaking. Rather, we want to focus on the plan inception, public participation, goalpolicy-project integration, and the implementation characteristics of the plans. Recent research suggests that public participation and implementation attributes contained in the plan are determinants of meaningful outcomes. 13 page 8

9 1 Brody, S. 2003a. Are We Learning to Make Better Plans? A Longitudinal Analysis of Plan Quality Associated with Natural Hazards. Journal of Planning Education and Research, 23(2) Brody, S. 2003b. Implementing the principles of ecosystem management through local land use planning, Population and Environment 29 (6): Burby, R.J. and Dalton, L.C., Plans can matter! The role of land use plans and state planning mandates in limiting development of hazardous areas. Public Administration Review 54:3, Norton, R More and better planning: State-mandated local planning in coastal North Carolina. Journal of the American Planning Association, 71(1): Berke, P. and Manta-Conroy, M Are we planning for sustainable development? Journal of the American Planning Association. 66(1) Aytur SA, Rodríguez DA, Evenson KR, Catellier DJ, and Rosamond WD. Promoting active community environments through land use and transportation planning. Am J Health Promotion. 2007; 21(4 supplement), Baer, W. C General plan evaluation criteria: An approach to making better plans. Journal of the American Planning Association 63 (3): Hopkins, L Urban development: The logic of making plans: Island Press. 9 Berke, P. R., D. R. Godschalk, E. J. Kaiser, and D. A. Rodriguez Urban land use planning. 5th ed. Urbana, IL: University of Illinois Press. 10 Kaiser, E. J., and D. Moreau Land development guidelines for north carolina local governments. Chapel Hill: Center for Urban Regional Studies, University of North Carolina, for Division of Community Assistance, NC Department of Commerce. 11 NCDOT Bicycle and Pedestrian Planning Grant Initiative. Accessed December 3, 2007 at 12 Florida Department of Transportation Developing pedestrian plans: pedestrian coordinators manual. Report no , Tallahassee, FL. 13 Steelman, T. and G. Hess. Under review. Effective protection of open space: How does planning matter? Landscape and Urban Planning. page 9

5. Pedestrian System. Accomplishments Over the Past Five Years

5. Pedestrian System. Accomplishments Over the Past Five Years 5. Pedestrian System Accomplishments Over the Past Five Years The Alamo Area Metropolitan Planning Organization (MPO) and its partner agencies recognize the importance of improving pedestrian mobility.