Agenda Item No. 14
And i
CITY COUNCIL STAFF REPORT
TO: Honorable Mayor and City Council DATE: June 26, 2023 FROM: Matthew Bronson, City Manager
PREPARED BY: Megan Martin, Community Development Director Rafael Castillo, AICP, Senior Planner
SUBJECT: Policy Direction on General Plan Circulation Element Update
RECOMMENDATION
Receive an overview of the General Plan Circulation Element and the upcoming process to update the Element and provide policy direction to staff.
BACKGROUND
The General Plan is a document required for every city in the state that outlines a city’s long-term vision and goals for development, land use, transportation, and other aspects that affect the built environment and quality of life for its residents. A General Plan typically includes the following sections or “elements”:
• Land Use. Identifies the types of land uses appropriate for different areas of the city, such as residential, commercial, industrial, and open space. • Circulation. Outlines the transportation infrastructure needed to support the city’s growth, including roads, public transit, and bike lanes.
• Housing. Addresses the city’s housing needs, including the types of housing units that should be built and their location.
• Conservation. Protects natural resources, preserves open space(s), and promotes sustainable development in a community.
• Noise. Addresses the issue and impact of noise on the quality of life for residents and can be used to guide land use decisions, transportation planning, and development activities in a community.
• Safety. Focuses on public safety and promotes public safety by reducing the risk of hazards in the community. Provides a framework for decision-making and can be used to guide policy and planning efforts related to emergency management, crime prevention, transportation safety, and environmental health and safety.
The City’s General Plan maintains all the required elements and includes Parks and Recreation as an “optional” element. Optional elements are not mandatory and are chosen by each jurisdiction at their discretion. Other examples from other communities include Economic Development, Cultural Resources, Sustainability, or Public Services and Facilities. Cities have the flexibility to tailor their general plans to their unique circumstances while adhering to applicable legal requirements. For example, a city with a rich architectural history and significant historical resources may consider adopting a Historic Preservation Element to address the preservation and promotion of historic structures, landmarks, and districts. Cities should update and consider their Staff Report: Policy Direction on General Plan Circulation Element Update Page 2 June 26, 2023
General Plan elements periodically to ensure the General Plan remains relevant, responsive to changing circumstances, and aligned with the community’s priorities.
The specific timing for updating elements of a General Plan can vary depending on statutory requirements, changes in demographics or growth, emerging issues or priorities, comprehensive review, and community engagement. The Council has previously directed staff to update outdated General Plan Elements and the chart below shows the date of the last update of each Element:
Most recently, the City completed an update to the Safety Element in 2022 and a Land Use Element to reflect changes in the City’s Development Code. The Circulation and the Noise Elements are the next elements to update based on the dates of adoptions of these Elements.
The Noise Element, last updated in 1993, requires a comprehensive review of the Circulation Element and thus staff is recommending pursuit of the Circulation Element update first.
Circulation Element Overview
The City’s Circulation Element was last updated in August 2005. The Circulation Element contains goals, policies, and programs that are intended to guide the city’s transportation network and correspond with the city’s growth and development. These goals, policies, programs, and other transportation improvements utilize a metric known as Level of Service (LOS) which identifies the impacts of traffic volume on a roadway or intersection based on vehicle delay at intersections and traffic speed and density on roadways. These conditions are impacted by various components of a roadway such as the number and width of lanes and shoulders and intersection signal timing.
LOS has been primarily used to gauge the impacts of traffic volumes within cities for the last 50 years, however, LOS typically does not gauge active transportation uses (walking/bicycles), nor promote or assess other modes of transportation (public transit). Typically, most streets within the city operate at LOS A or B with intersections operating at various LOS levels, particularly during what is considered “peak” traffic times under the LOS methodology (afternoon rush hours). The following page shows a chart from the Institute of Traffic Engineers highlighting the definitions and conditions of each respective Level of Service on roadways:
Grover Beach General Plan Element Updates
Element Last Updated
Land Use 2022
Safety 2022
Conservation 2020
Open Space 2020
Circulation 2005
Noise 1993
Staff Report: Policy Direction on General Plan Circulation Element Update Page 3 June 26, 2023
The Circulation Element also establishes and provides goals and policies for the following:
• Classification of streets
• Traffic control
• Truck routes
• Transit use
• Pedestrian circulation
• Bicycle routes
Since the adoption of the Circulation Element, the City has performed a comprehensive update of its Land Use Element and updated the City’s zoning code (now referred to as the Development Code) and adopted a Bicycle Master Plan in 2011 that implements the citywide bicycle facilities and connections to the regional bicycle network. However, these updates have not been incorporated into the Circulation Element. Updating the Circulation Element will ensure the City is better qualified to compete and receive regional, State, and Federal grant funding for circulation improvements. City staff also anticipates the Circulation Element update will provide a useful analysis to prioritize future street improvement projects through the Capital Improvement Program (CIP) as authorized by the City Council.
State Laws and Circulation Element Update
In addition to the policy reasons to update the Circulation Element, the State has enacted significant laws regarding transportation, including the Complete Streets Act of 2008 which requires municipalities to have a balanced multimodal transportation network that meets the needs of all users of streets roads and highways. The City has made steps towards this with the adoption of the Bicycle Master Plan and inclusion of pedestrian and bicycle safety measures in major street projects. However, the City has not updated its classification system nor reviewed its circulation system to identify upgrades necessary for consistency with this State legislation.
Staff Report: Policy Direction on General Plan Circulation Element Update Page 4 June 26, 2023
Senate Bill (SB) 743, enacted in 2013, further changed the way transportation impacts are evaluated under the California Environmental Quality Act (CEQA) as of July 1, 2020. Prior to SB 743, assessing changes in the LOS on roadways as a result of a new project was the primary measure of transportation impacts. SB 743 requires a shift away from this approach and instead requires transportation impacts that consider factors such as the availability of sustainable modes of transportation, access to jobs and services, and the reduction of greenhouse gas (GHG) emissions. As part of the implementation of SB 743, the State has developed new guidelines for evaluating transportation impacts for new development projects under the California Environmental Quality Act (CEQA). This encourages the use of other metrics including vehicle miles traveled (VMT) instead of LOS. The use of VMT focuses on how the project will impact the overall number of miles driven by users of the project rather than the impact of congestion. It is widely recognized that VMT is a more comprehensive measure of impacts that accounts for factors such as travel behavior, land use patterns, and access to alternative modes of transportation though LOS is still a useful metric of roadway delay.
Updating the Circulation Element consistent with SB 743 allows for implementation of State law and reduces barriers to housing developments and projects with economic benefits to the City.
While the City may continue to only utilize LOS instead of VMT, doing so would make it more difficult to comply with State law and related implementation guidelines and may lead to increased legal challenges under CEQA. Relying solely on LOS can also result in a limited approach to transportation planning that does not fully account for the impacts of transportation on the environment, greenhouse gas emissions, public health, and social equity. As a result, the State generally recommends that cities use VMT as the primary measure of transportation impacts when evaluating projects under CEQA. The City may however choose to continue to consider LOS as a secondary factor in evaluating project impacts. One example of this would be delegate authority to the Community Development Department to require LOS on qualifying projects exempt from CEQA and VMT for those subject to CEQA, consistent with State law.
In addition to complying with State law, the Circulation Element update further supports the City’s FY 2023-25 City Council Goals including the Major City Goal of “Street Maintenance and Complete Streets.” With this goal, the Council seeks to: complete Measure K-14 street improvements on arterials and local streets; create a maintenance plan and related funding for improved streets; pursue opportunities to design and build safer, more pedestrian and bicycle friendly “complete streets” by incorporating where feasible bicycle lanes, sidewalks, streetlights, crosswalks, trees/landscaping, and other traffic calming design strategies. Completing an update to the Circulation Element can provide opportunities for funding for infrastructure projects like Measure K-14, as well as demonstrate a commitment to sustainable transportation planning.
Incorporating the principles of SB 743 into the Circulation Element update will enhance the City’s chances of securing funding for infrastructure projects that support sustainable transportation and contribute to the City's goals.
Process to Update City’s Circulation Element
Updating a City’s Circulation Element requires a comprehensive and collaborative planning process that involves stakeholders, transportation professionals, and the community. There are typically several steps involved, but generally, the process to update the Circulation Element includes the following:
• Review existing conditions and data. City staff will work with a consultant to review existing transportation data, such as traffic volumes, accident rates, and congestion levels. This data will be compared with demographic data, land use patterns, and other factors that affect transportation and mobility in the community.
Staff Report: Policy Direction on General Plan Circulation Element Update Page 5 June 26, 2023
• Establish goals and objectives. This effort will involve public input, stakeholder engagement, and consultation with transportation professionals and experts. Goals and objectives may include updating street classifications and conceptual street profiles, improving safety, promoting sustainable transportation modes, and enhancing mobility for all users.
• Develop strategies and policies. Identify transportation infrastructure improvements, such as transit options, reduce width of roads, safe routes to schools, promote sustainable modes of transportation such as biking, walking, or public transit. • Draft the Circulation Element. A draft document that outlines the city’s goals, objectives, and city’s transportation policies and plans for the future. • Conduct public review and comment. The Circulation Element will be made available for public review and comment. Public meetings, workshops, or hearings will be utilized to solicit feedback from the community.
• Conduct environmental review: Environmental review will provide decision-makers and the general public with an analysis of the immediate and long-term specific and cumulative impacts of the update on the city’s and regional transportation network. • Adopt the updated Circulation Element. After public review and comment, the City will consider the feedback received and make revision to the updated element. The element is then adopted by the Council through a public hearing.
• Update the Capital Improvement Program (CIP). Based on what is approved with the Circulation Element, the CIP would need to be updated for long range policy implementation, and short-range priorities.
• Carry out implementation and monitoring. City staff will implement the strategies and policies outlined in the document and monitor progress. Updates may be periodically required to achieve the goals and objectives as needed.
City Council Policy Direction
City staff will commence the Circulation Element update through a Request for Proposal (RFP) process. To ensure a streamlined RFP process and assist in selecting the most qualified consultant within the budget, staff requests the Council provide direction on key items:
• Incorporation of the Planning Commission
Staff recommends utilizing the Planning Commission to conduct two study sessions.
These sessions would take place at critical junctions of the element update process. • Additional Opportunities for Public Participation
The Council could provide direction to create opportunities for additional public participation. This would include additional “pop-up booths” during City-sponsored or other events at certain designated “check-in” points outside of the Planning Commission or other participation by utilizing the City’s communications consultant. • Continued Use of LOS for Project Approvals
The Circulation Element will need to address the requirement of SB743 that calls for utilizing VMT as a metric to address the impacts of proposed developments that do not qualify for a CEQA exemption. The Council can direct staff to continue to use LOS standards for the purposes of non-CEQA related project approvals, but as to all other projects subject to CEQA, the Community Development Director would have authority to determine whether a VMT is required. The LOS standards may still be used to require transportation improvements, in addition to any VMT-related impacts that may need to be mitigated against. Cities throughout California utilize this “hybrid” approach.
Staff Report: Policy Direction on General Plan Circulation Element Update Page 6 June 26, 2023
• Incorporation of the Bicycle Master Plan
The Bicycle Master Plan was adopted in 2011 and has not been updated since that time. It is common for cities to incorporate such a plan into their Circulation Element. This integration ensures that bicycle planning is aligned with the overall vision and goals outlined in a Circulation Element. While a Bicycle Master Plan primarily focuses on promoting cycling infrastructure and improving conditions for cyclists, it is not uncommon for such plans to recognize the importance of pedestrian facilities and safety as well. Many cities understand that a comprehensive approach is necessary to create a truly multimodal transportation network.
However, the proposed budget for the Circulation Element work effort is limited. To ensure a more comprehensive circulation document, staff is recommending the use of staff resources working in concert with a selected consultant to incorporate the Bicycle Master Plan as a part of the Circulation Element update, as well as integrate strategies for pedestrian facilities and safety (i.e. enhancing sidewalk infrastructure, improving crosswalks and pedestrian signals, adequate lighting and visibility, pedestrian-friendly amenities, and promoting pedestrian safety education). Due to limited staff resources and budget, this may extend the overall timeline anticipated for updating the circulation element by several months. The Council could instead direct staff to have this effort be an “action item” and have staff incorporate the Bicycle Master Plan and pedestrian facilities and safety at a future date following the Circulation Element update. • Reclassification of City Streets
The existing Circulation Element contains classification of streets based on typical street hierarchy (i.e. local streets, arterials, collectors). Major and Minor collector streets were designated in the Element; however, corresponding street cross-sections and profiles do not match existing conditions and improvements that have been completed over the last several years. City staff seeks direction to evaluate the existing transportation network not based on the 2005 Circulation Element, but rather what is existing today, and what future growth development may incur on the network, particularly on streets parallel to major thoroughfares such as 4th Street and Grand Avenue, as these may become alternative routes for vehicles and bicyclists.
Next Steps
Based on the Council direction on the items above, staff will solicit proposals from transportation professionals and experts to update the City’s Circulation Element with a budget not to exceed $60,000. Below is a general timeline for this process:
Task Target Date
Council Direction on Circulation Element Update June 2023 Issue RFP July 2023
Community Outreach and Forums
• Grover Beach Summer Concert Series, Stone Soup
July – August 2023
Award Contract to Consultant September 2023
Update to Circulation Element (see Process section above) October 2023 – March 2024 Public Review of Draft Circulation Element and Environmental Document
April 2024
Adopt Circulation Element June 2024
Staff Report: Policy Direction on General Plan Circulation Element Update Page 7 June 26, 2023
FISCAL IMPACT
There is no fiscal impact associated with this agenda item. Subsequent agenda items related to hiring a consultant to develop the Circulation Element update and implementing transportation improvements would have specific fiscal impacts. Funding to develop this update is included in the City’s operating budget.
ALTERNATIVES
The City Council has the following alternatives to consider:
1. Receive staff presentation and provide direction to staff to draft an RFP to solicit a qualified consultant to update the City’s 2005 Circulation Element.
2. Provide alternative direction to staff.
PUBLIC NOTIFICATION
The agenda was posted in accordance with the Brown Act.
Attachments
1. 2005 Circulation Element
2. 2011 Bicycle Master Plan
CITY OF GROVER BEACH
GENERAL PLAN
CIRCULATION ELEMENT
August 2005
Attachment 1
MAYOR AND CITY COUNCIL
Mayor Shoals
Mayor Pro Tem Versaw
Council Member Ashton
Council Member Ekbom
Council Member Lieberman
PLANNING COMMISSION
Bart Calmenson, Chair
Robert Mires, Vice Chair
Commissioner Versaw
Commissioner Barnett
Commissioner Conroy
Commissioner Leon
Commissioner Matsuura
STAFF
Jake Raper, Jr. , Community Development Director
Susan Zaleschuk, AICP, Assistant Community Development Director Julie Hawkins, Acting Planner III
CONSULTANT ASSISTANCE (R658CE001)
Martin R Inouye – OMNI-MEANS Engineers & Planners
Ravi Narayanan, P.E. – OMNI-MEANS Engineers & Planners
General Plan Elements
Element Title Adoption or Last
Major Revision Date
Land Use 12/07/92
Housing 12/15/03
Circulation
Open Space and Conservation 08/06/73
Parks and Recreation 03/07/05
Noise 06/21/93
Scenic Routes 11/02/81
Seismic/Safety 2000
CITY OF GROVER BEACH
COMMUNITY DEVELOPMENT DEPARTMENT
City Hall - 154 South Eighth Street
Grover Beach, California - 93433
Telephone 805 473-4520 - Fax 805 489-9657
[email protected]
General Plan Circulation Element Page i
City of Grover Beach R658ce006FinalReport.doc
Table of Contents
I INTRODUCTION.................................................................................................................................1
1.1 PURPOSE AND LEGISLATIVE AUTHORITY....................................................................1
1.2 RELATIONSHIP TO OTHER GENERAL PLAN ELEMENTS ..........................................1 II. PUBLIC PARTICIPATION ................................................................................................................2 III. CIRCULATION ELEMENT ORGANIZATION ............................................................................3 PART A - GOALS, POLICIES, AND PROGRAMS .............................................................................4 POLICIES AND PROGRAMS ........................................................................................................4 GOAL 1: PROVIDE SAFE AND EFFICIENT VEHICULAR MOVEMENT.............................4 GOAL 2: COORDINATE POLICIES FOR LAND DEVELOPMENT AND CIRCULATION7 GOAL 3: PROMOTE ALTERNATIVE TRAVEL MODES, INCLUDING TRANSIT, PEDESTRIAN, BICYCLE, RAIL SYSTEMS ..........................................................................8 GOAL 4: COORDINATE LOCAL TRANSPORTATION PLANNING AND
ADMINISTRATION WITH THE ACTIVITIES OF OTHER GOVERNMENT
AGENCIES AND CONCERNS OF LOCAL CITIZENS AND BUSINESSES ..................9 GOAL 5: DESIGN AND IMPLEMENT THE CIRCULATION SYSTEM TO PROTECT NATURAL FEATURES AND CONSERVE ENERGY. .....................................................10 PART B - PRIMARY CIRCULATION SYSTEM ................................................................................11 B.1 CIRCULATION MASTER PLAN AND STREET CLASSIFICATION .............................11 B.2 TRAFFIC CONTROLS ............................................................................................................16 B.3 TRUCK ROUTES .....................................................................................................................17 B.4 SCENIC HIGHWAYS/SCENIC ROUTES ...........................................................................18 PART C - SECONDARY CIRCULATION SYSTEM .........................................................................20 C.1 TRANSIT/BUS ........................................................................................................................20 C.2 RIDESHARING .......................................................................................................................20 C.3 BICYCLE CIRCULATION .....................................................................................................20 C.4 PEDESTRIAN CIRCULATION.............................................................................................24 C.5 OTHER TRAVEL MODES .....................................................................................................24 PART D – CIRCULATION ISSUES OF CONCERN .........................................................................25 Table of Figures
Figure CE-1 Circulation Master Plan ..................................................................................................12 Figure CE-2 Truck Routes.....................................................................................................................19 Figure CE-3 Bikeway Master Plan Travel Corridors ........................................................................23 Figure CE-4 West Grand Avenue “Downtown Projects” Improvements......................................26 Table of Tables
Table CE-1 Circulation Improvements ................................................................................................6 Table CE-2 Level-Of-Service (LOS) Criteria for Roadway Segments .............................................13 Appendix
Level of Service Concept
General Plan Circulation Element Page 1
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I INTRODUCTION
1.1 PURPOSE AND LEGISLATIVE AUTHORITY
The purpose of the City’s General Plan Circulation Element is to guide the growth and expansion of transportation and circulation facilities within the City’s planning area. The intent of the Element is to coordinate the expansion of the City’s circulation system with the land use changes and growth of the community over the next 20 years so that good travel flow conditions can be maintained. The following is an excerpt from the General Plan Guidelines published by the Office of Planning and Research, 1982.
Government Code Section 65302(b): "A Circulation Element consisting of the general location and extent of existing and proposed major thorough-fares, transportation routes, terminals, and other local public utilities and facilities, all correlated with the Land Use Element of the General Plan." Since the Circulation Element was first required by State law in 1955, transportation technology and needs in California have changed greatly, with the emphasis today on the development of a balanced, multi-modal transportation system. The policies and plan proposals of the Circulation Element should:
1. Coordinate the transportation and circulation system with planned land uses;
2. Promote the efficient transport of goods and the safe and effective movement of all segments of the population;
3. Make efficient use of existing transportation facilities; and
4. Protect environmental quality and promote the wise and equitable use of economics and natural resources.
1.2 RELATIONSHIP TO OTHER GENERAL PLAN ELEMENTS
The Circulation Element is most closely related to the Land Use Element of the General Plan. An effective Circulation Element attempts to coordinate estimated increases in the intensities of land uses with improvements in the circulation system to provide sufficient capacity for the resulting increases in travel demand. Roadway improvements should be planned well in advance of anticipated where significant traffic increases.
Since the City street system described in the Circulation Element includes scenic routes, the Circulation Element is related to the City’s optimal Scenic Highways Element. Additionally, because traffic on the circulation system is one of the major generators of noise, the Circulation Element is also related to the Noise Element of the General Plan. Also, because traffic safety is an important concern of the Circulation Element, it is also related to the Safety/Seismic Safety Element. Factors of safety and seismic safety affect the location and design of circulation infrastructure, both in terms of structural safety and the need for evacuation and emergency routes.
The Circulation Element is also directly related to the social and economic development of the City. Economic activities require access for the movement of materials, products, customers and employees. Thus, the economic health of a community is influenced by the effectiveness and efficiency of the circulation system.
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II. PUBLIC PARTICIPATION
To initiate the public involvement process in the City’s update process of the Circulation Element, a public workshop was held to inform the public of the upcoming update and seek their input on general and specific concerns on the current operation and future transportation planning of their circulation system. Some concern was raised relative to the breath of notification of the workshop, however, approximately 15 to 20 citizens from the public did attend, including public officials, and was covered, live, on the local public television channel.
Through this first workshop, the citizens identified key circulation issues of concern and also suggested their solutions and strategies to help address the issues identified.
With the input from the public workshop, technical analyses were prepared and a draft Circulation Element was created along with a Technical Appendix that documented the analyses. These documents incorporate all public input. The documents were submitted for review by the City’s Planning Commission, who then forwarded their input to City Council for their review and approval. Each of these meetings, with the Planning Commission and City Council, were open to the public as a part of the City’s public hearing process.
An article also appeared in the City Sea Breeze newspaper in Fall, 2003 that described the project and progress to date.
General Plan Circulation Element Page 3
City of Grover Beach R658ce006FinalReport.doc
III. CIRCULATION ELEMENT ORGANIZATION
This Circulation Element includes all the State required topics that must be included in a Circulation Element in addition to identification of issues of concerns and potential solutions to address them. This Element is divided into the following four sections or parts and a Technical Appendix.
Part A – Goals, Policies and Programs
Part B – Primary Circulation System
Part C – Secondary Circulation System
Part D – Circulation Issues of Concern
In addition to this Circulation Element that is incorporated into the City’s General Plan, a Technical Appendix has also been created (provided under separate cover) to provide a comprehensive technical support document. The Technical Appendix includes all background transportation conditions and traffic data, the Citywide traffic model development process and future traffic forecasts and analyses.
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PART A - GOALS, POLICIES, AND PROGRAMS
The City’s Circulation Element goals will provide the overall direction the City desires in planning and implementing the expansion of their circulation system to meet the changing travel demands of their community. The circulation policies will establish the link between the adopted goals and the implementing programs, and guide how the programs will actually be implemented. The programs, themselves, are the specific action items that will accomplish the improvement or plan that will meet and serve the expanded community need.
GOALS
1. Provide Safe and Efficient Vehicular Movement.
2. Coordinate Policies for Land Development and Circulation.
3. Promote Alternative Travel Modes, Including Transit, Pedestrian, Bicycle, and Rail Systems.
4. Coordinate Local Transportation Planning and Administration with the Activities of Other Government Agencies and Concerns of Local Citizens and Businesses.
5. Design And Implement The Circulation System To Protect Natural Features and Conserve Energy.
POLICIES AND PROGRAMS
Circulation Goals are provided with the groupings of Policies and Programs to readily connect the link between the above goals and their Policies and Programs.
GOAL 1: PROVIDE SAFE AND EFFICIENT VEHICULAR MOVEMENT
Policy 1.1: Create/Update Citywide Circulation Master Plan.
Program 1.1.1: The City shall maintain the Citywide Traffic Model to help forecast future travel, identify circulation deficiencies and recommend improvements.
Program 1.1.2: The City shall update, as a necessary, the Circulation Master Plan to define and guide the future expansion of the circulation system (Figure CE-1).
Program 1.1.3: The City shall pursue funding to construct improvements identified in the Circulation Master Plan, including seeking Federal and State grants and updating the traffic impact fee program on a timely basis.
Policy 1.2: Monitor the operation and performance of the street system.
Program 1.2.1: The City shall maintain and update a functional classification of the street system that reflects land use and traffic patterns.
Program 1.2.2: The City shall establish a data collection program for the street system to include a physical inventory, traffic volumes and accident reports. A General Plan Circulation Element Page 5
City of Grover Beach R658ce006FinalReport.doc
summary of such information could be posted on the City’s website and updated as appropriate.
Program 1.2.3: The City shall maintain a minimum traffic operating Level of Service of “C” on all City transportation facilities.
Program 1.2.4: The City shall strive to control traffic levels in residential neighborhoods to not exceed a threshold of 4,000 ADT on any given residential street segment. If such threshold is exceeded, alternative traffic calming strategies shall be considered and implemented as resources permit.
Policy 1.3: Maintain roadways and traffic signals in good condition.
Program 1.3.1: The City shall develop a priority system for physical improvements based on demonstrated needs according to the collected data on physical conditions, traffic volumes and safety reports.
Program 1.3.2: The City shall respond quickly to traffic signal breakdowns and sign damages and losses.
Policy 1.4: Improve traffic capacities of streets.
Program 1.4.1: The City shall create a Capital Improvement Program to construct, pursuant to available funding and priority, improvements that are consistent with the City’s Circulation Master Plan.
Program 1.4.2: The City shall control and coordinate with adjacent jurisdictions major access points.
Program 1.4.3: The City shall consider restriction of on-street parking on major and secondary arterials when needed to provide additional street capacity.
Program 1.4.4: The City shall optimize traffic signal performance to increase traffic flow. Every effort will be made to coordinate this effort with adjacent jurisdictions.
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TABLE CE-1
CIRCULATION IMPROVEMENTS
West Grand Avenue
SR 1 Highway to 8th Street – Enhance traffic safety, pedestrian accommodations and community character to help slow traffic
4th Street intersection – Ensure with continued improvements through this intersection, proper widening is provided that enhances safety for pedestrians, bicyclists, large truck movement and overall vehicular travel.
8th Street to 11th Street – “Construct Downtown Project” 11th Street to Oak Park Avenue – Enhance traffic safety and character to help provide a more attractive community.
Oak Park Boulevard
Brighton Avenue to Ramona Avenue – Complete 4-lane widening Manhattan Avenue to Seabright Avenue – Complete 4-lane widening 4th Street
Trouville Avenue to The Pike – Widen and Extend to 4 lanes including realignment to align with The Pike.
The Pike
4th Street to Oak Park Boulevard – Widen and extend to 4 lanes Traffic Signals
Atlantic City Avenue/North 4th Street
Oak Park Boulevard/Atlantic City Avenue or Saratoga Avenue Oak Park Boulevard/Mentone Avenue
Oak Park Boulevard/Farroll Avenue
Oak Park Boulevard/The Pike
4th Street/Farroll Avenue
Policy 1.5: Improve traffic safety.
Program 1.5.1: The City shall review the location and frequency of accidents and develop specific site improvements.
Program 1.5.2: The City shall consider changes in speed limits, parking and turning restrictions to enhance safety.
Policy 1.6: Provide for truck and emergency vehicle traffic.
Program 1.6.1: The City shall designate by ordinance truck routes to direct trucks to routes that maintain sufficient carrying capacity and to discourage truck traffic on local residential streets. See CE-2 Truck Routes. Additionally, to the modification to the truck route serving the Front Street Industrial Area, that places the truck route on Ramona Street and 3rd Street, a raised median shall be installed on Grand Avenue to restrict access to the 1st Street intersection to right turns only.
Program 1.6.2: The City shall identify primary emergency vehicle routes and links between the hospital, fire and police stations.
Program 1.6.3: Design standards for local streets will provide adequate access for fire and police department services. The design of cul-de-sac streets will be discouraged in industrial zoned areas.
Program 1.6.4: Implementation of traffic calming measures shall consider potential impacts to response times for emergency service vehicles. To further limit potential General Plan Circulation Element Page 7
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usage of residential streets between the Front Street industrial area and 4th Street, traffic calming measures specifically should be considered on Newport Avenue, Saratoga Avenue and Brighton Avenue.
Program 1.6.5: The City shall upgrade traffic signal installations to include “opticom” emergency vehicle pre-emption to enhance emergency response safety.
GOAL 2: COORDINATE POLICIES FOR LAND DEVELOPMENT AND CIRCULATION Policy 2.1: The planning, alignment and improvement of the street network will reflect the proposed land use pattern of the General Plan.
Program 2.1.1: The functional classification of streets will identify street purpose and the standards of improvement necessary to accommodate anticipated traffic demand.
Program 2.1.2: In establishing priorities for street improvements, the potential for effects on land use and traffic patterns will be evaluated.
Program 2.1.3: Through-traffic will be discouraged in residential neighborhoods without adversely inhibiting the movement of residents. This may be accomplished by implementing traffic calming measures and other strategies including, but not limited to, traffic diversions, or street design and/or alignment modifications.
Program 2.1.4: A system of collector streets will continue to be expanded to provide easy access from local streets to commercial centers, schools and other high-traffic generators.
Program 2.1.5: The City shall adopt new street plan lines (street alignments) for arterials and collectors to protect rights-of-way for future street improvements.
Policy 2.2: Review the impact of land use proposals on the circulation system.
Program 2.2.1: Development proposals shall be reviewed according to the provisions of the zoning and subdivision ordinance to ensure that adequate access, on-site circulation, parking and loading areas are provided.
Program 2.2.2: The City shall require developers to provide mitigations to potential adverse impacts of development on the existing street system. This may include necessary street improvements, traffic signs or signals.
Program 2.2.3: Roads created in subdividing or land parceling will be designed to tie into existing and anticipated road systems.
Program 2.2.4: Development review will analyze of visibility at intersections.
Policy 2.3: Integrate the circulation system as a positive element of community design.
Program 2.3.1: The City shall update and continue to implement the Street Tree Program, consistent with Municipal Code Chapter 5 (9500).
Program 2.3.2: In the development review process, the City shall include consideration of the visual aspects of a development for roadways. Aesthetic consideration shall include architectural compatibility and landscaping.
Program 2.3.3: The City shall continue implementation of the utility undergrounding program.
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Program 2.3.4: The City shall consider the construction of landscaped medians on commercial thoroughfares (such as Grand Avenue) to help slow traffic flows and to help provide for a more scenic roadway.
Program 2.3.5: The City shall consider integrating residential street features that calm traffic, increase safety and are aesthetic amenities to neighborhoods. This program to include consideration and funding of potential traffic calming demonstration projects on Newport Avenue and/or Long Branch streets or another residential street as decided upon by City Council. Additionally, reduction in residential street width shall also be considered as a traffic calming option. If such street width reduction is recommended and implemented, consideration for reduction of public right of way should also be included.
GOAL 3: PROMOTE ALTERNATIVE TRAVEL MODES, INCLUDING TRANSIT,
PEDESTRIAN, BICYCLE, RAIL SYSTEMS
Policy 3.1: Provide for desirable and safe alternative access to schools, parks and shopping areas from residential areas within the City.
Program 3.1.1: The City shall plan and require construction of bikeways, sidewalks and pedestrian accessways to all major destination points within the City.
Program 3.1.2: The City shall maximize the involvement of public agencies and the private sector in the provision of transit services and alternative access.
Policy 3.2: Encourage the continued development and expansion of local and regional public transit systems.
Program 3.2.1: The City shall review and comment on proposed changes to the South County Area Transit (SCAT) bus system.
Program 3.2.2: The City shall pursue a Regional Transit Station on Ramona Avenue at Ramona Park.
Policy 3.3: Encourage bicycle transportation.
Program 3.3.1: The City shall create and update a Bikeway Master Plan (Figure CE-3) to guide the orderly provision of bikeway facilities throughout the City. This effort should be coordinated and in compliance with the Parks and Recreation Element of this General Plan.
Program 3.3.2: The City shall provide bicycle lanes along the Grand Avenue corridor.
Program 3.3.3: The City shall integrate local bikeway planning with regional plans.
Program 3.3.4: The City shall encourage the provision of bicycle support facilities at major bicycle destination points.
Program 3.3.5: The City shall continue and expand bicycle safety education programs within the local schools.
Program 3.3.6: The City shall seek State Bicycle Lane Account funds and other funding to help pay for the completion of a comprehensive bikeway system within in the City.
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Policy 3.4: Improve and maintain the system of sidewalks and crosswalks to promote a pedestrian-friendly community
Program 3.4.1: The City shall identify and prioritize major sidewalk improvements.
Program 3.4.2: The City shall comply with the American Disabilities Act (ADA) and construct improvements to enhance accessibility.
Program 3.4.3: The City shall provide crosswalks at signalized intersections.
Program 3.4.4: The City shall require sidewalks along public frontage for new public and private developments.
Policy 3.5: Promote rail transportation.
Program 3.5.1. The City shall maintain adequate freight rail service to commercial and industrial properties located along the railroad right-of -way.
Program 3.5.2. The City shall coordinate with the San Luis Obispo Council of Governments regarding the potential for commuter rail service. Currently, Amtrak stops twice daily in the City.
Program 3.5.3. The City shall continue to enhance use of the multi-model terminal by promoting the Amtrak bus feeder link, which provides connections to trains north and south of the City.
Policy 3.6: Support accessibility to the San Luis Obispo and Oceano Airports.
Program 3.6.1. The City shall enhance and maintain signage and routing between the City and the San Luis Obispo and Oceano Airports as these airports provide important air commuter, air freight and air emergency response to and from the City and its citizens.
GOAL 4: COORDINATE LOCAL TRANSPORTATION PLANNING AND
ADMINISTRATION WITH THE ACTIVITIES OF OTHER GOVERNMENT AGENCIES
AND CONCERNS OF LOCAL CITIZENS AND BUSINESSES
Policy 4.1: Publicize major transportation issues and solicit public input.
Program 4.1.1: The City shall provide timely notification to the public through press releases, public service radio announcements, television and contact with local organizations.
Program 4.1.2: The City shall conduct public hearings on proposed major actions and notify the public through mandated public notices.
Program 4.1.3: The City shall convene for a duration as needed, a Traffic Committee to address specific transportation issues and concerns as they arise within the City.
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Policy 4.2: Coordinate transportation planning with regional and local plans.
Program 4.2.1: The City shall coordinate compatibility of proposed actions with transportation plans of adjacent cities, San Luis Obispo County and San Luis Obispo Council of Governments.
Program 4.2.2: The City shall evaluate regional impacts of proposed local improvements.
Program 4.2.3: The City shall coordinate with CALTRANS District 5 and the Federal Highway Administration (FHWA) on improvement plans to State/Federal facilities within the City’s planning area and its vicinity.
GOAL 5: DESIGN AND IMPLEMENT THE CIRCULATION SYSTEM TO PROTECT NATURAL FEATURES AND CONSERVE ENERGY.
Policy 5.1: Designate local scenic routes and enhance and protect their scenic qualities.
Program 5.1.1: The City shall control the quality of improvements through design standards and review.
Program 5.1.2: The City shall investigate public or private agency acquisition of land, development rights or open space easements for areas of outstanding scenic value.
Policy 5.2: Protect natural features.
Program 5.2.1: The City shall strive to minimize the loss of prime agricultural land to road construction.
Program 5.2.2: The City shall investigate public or private agencies’ acquisition of land, development rights or open space easements for agricultural areas.
Program 5.2.3: The City shall strive to minimize grading for new roads and improvements, conserve prominent land forms and minimize tree removals.
Program 5.2.4: The City shall comply with the Clean Air Act.
Program 5.2.5: The City shall evaluate circulation improvements and traffic control as to their effect on air and noise pollution.
Policy 5.3: Conserve energy.
Program 5.3.1: The City shall provide for bikeways, pedestrian ways, and public transit as energy conserving, non-polluting alternatives to auto travel.
Program 5.3.2: The City shall strive to provide for smooth traffic flow and a compact urban pattern to maximize efficient movement between residential, commercial and public areas.
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PART B - PRIMARY CIRCULATION SYSTEM
B.1 CIRCULATION MASTER PLAN AND STREET CLASSIFICATION
In response to the first circulation goal, a Circulation Master Plan has been created to guide the future expansion of the City’s circulation system and to define the functional classification of the system to meet the travel needs to the community. Shown on Figure CE-1 is the City’s Circulation Master Plan.
Functional classification designates all streets and highways within the City’s planning area and vicinity into several broad categories. These categories include Freeway, Highway, Arterial (Major and Minor), Collector, and Local streets. Each classification has specific standards and criteria through which design and route are developed. These criteria include:
1. Existing and potential development and land use intensities;
2. Expected peak traffic loads;
3. Potential physical improvements such as road widening; and
4. Special designations such as scenic routes.
Below are the standard street right-of-way widths for each classification used in the City of Grover Beach. Design cross-sections can be found in the City's Standards and Specifications.
Street Classification Standard R-O-W Width
Major Arterial 100' Minimum
Minor Arterial 70’ Minimum
Collectors 60’ Minimum
Local 52' Minimum
As shown on the following Table CE-2, Level of Service criteria and thresholds are provided for each classification of roadway within the City. A description of each Level of Service grade is provided in the Appendix.
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TABLE CE-2
LEVEL-OF-SERVICE (LOS) CRITERIA FOR ROADWAY SEGMENTS
Total Two-way Average Daily Traffic (ADT) Roadway Segment Type LOS “A” LOS “B” LOS “C” LOS “D” LOS “E”
4-Lane Divided Freeway 28,000 43,200 61,600 74,400 80,000 2-Lane Highway 11,000 12,500 14,500 16,000 18,000
4-Lane Major Divided Arterial
(with left-turn lane) 22,000 25,000 29,000 32,500 36,000 4-Lane Minor Undivided
Arterial
(no left-turn lane)
18,000 21,000 24,000 27,000 30,000
2-Lane Major Arterial
(with left-turn lane) 11,000 12,500 14,500 16,000 18,000 2-Lane Minor Arterial
(no left-turn lane) 9,000 10,500 12,000 13,500 15,000
2-Lane Collector 6,000 7,500 9,000 10,500 12,000
2-Lane Local Street 2,000 3,000 4,000 5,000 6,000
Note: 1. Based on "Highway Capacity Manual", Transportation Research Board, 2000.
2. All traffic volumes are approximate and assume ideal roadway characteristics. Actual threshold volumes for each Level of Service listed above may vary depending on a variety of factors including (but not limited to) roadway curvature and grade, intersection or interchange spacing, driveway spacing, percentage of trucks and other heavy vehicles, travel lane widths, signal timing characteristics, on-street parking, volume of cross traffic and pedestrians, etc.
Freeway: Freeways are high-speed and high-capacity vehicle corridors with no “at-grade” crossings interrupting the flow of traffic, and provide entrance/exit opportunities through various forms of interchanges.
The City of Grover Beach is currently served by US 101, a four-lane divided freeway, two lanes in each direction. US 101 is a major inter-regional link of Statewide importance that connects between the San Francisco Bay Area and Los Angeles urban basin and traverses through most of San Luis Obispo County. There are two interchanges from US 101 that serve the City of Grover Beach, Fourth Street and Oak Park Boulevard. Land near these interchanges is valuable because of its visibility and accessibility to the freeway. Interchanges are focal points for commercial activity and, as such, may encourage future development.
The effect that freeway interchange development has had on the City of Grover Beach has not been great. The Fourth Street interchange is in Pismo Beach, and only one corner of the Oak Park Boulevard interchange is within the City of Grover Beach. Most of the land between these interchanges along the Frontage Road is sensitive and is within the 100-year flood plain.
State Highways: State Route One (SR 1) passes through Grover Beach and Pismo Beach and the unincorporated community of Oceano. In the City of Grover Beach, SR 1 is a 2-lane facility with Class II bike lanes on either side. This highway carries local traffic as well as tourist-related General Plan Circulation Element Page 14
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traffic. As with most major routes within the area, traffic volumes increase significantly during peak summer months.
Major Arterial: A major arterial provides for the movement of large volumes of through traffic between major traffic generators. Grand Avenue is classified as a major arterial street that runseast-west the width of the City. Year 2003 traffic counts on Grand Avenue indicate an average daily traffic (ADT) volume of over 21,600 vehicles on the segment just west of the City’s eastern limits and 13,300 ADT on the Grand Avenue segment between 9th and 10th Streets, well within the capacity of the current five-lane arterial (four-lane-arterial with two-way left-turn median lane) cross-section. Direct driveway access onto Grand Avenue should be kept to a minimum.
In order to protect the integrity of this “major arterial” left turn egress from adjoining property onto Grand Avenue should be restricted. The exceptions would be considered “special circumstances”, and would only be granted following the provision of a traffic engineering analysis that documents that this movement would not degrade capacity and/or safety now and into the future.
To enhance safety and downtown character, but not still lose needed travel capacity, the City will implement the “Downtown Project”. This project, which initially extended from 8th to 11th Street, will add median landscaping, intersection bulb-outs and bike lanes, but not reduce the number of travel lanes on Grand Avenue. A more complete description of the planned improvements is provided in the following section.
Minor Arterial: Minor arterials provide for the movement of traffic to and from collector streets, major arterial streets and the freeway. Minor arterials take some of the load off the major arterial streets, and also help provide transition from major arterials to collector streets.
Minor arterials are the foundation of an efficient, attractive, and safe circulation system. The following streets are designated as minor arterial streets:
1. Oak Park Boulevard (US 101 to The Pike)
2. North and South 4th Street (All segments)
3. The Pike (All segments)
Collectors: Collector streets represent the transition from arterial streets to local streets.
Collectors should be designed to move traffic safely and efficiently, minimizing direct access to property. In most cases, a 60’ minimum right-of-way is sufficient to accomplish these objectives. With these widths, traffic flow may be regulated by placing stop signs on local streets. This right-of-way width would accommodate two lanes of traffic (one per direction), on-street parking, sidewalks, and public utility easements. This street could accommodate four lanes of traffic (two per direction) if on-street parking were restricted and the street restriped.
The following streets are designated as collector streets:
1. North and South 8th Street (Atlantic City Avenue to Farroll Avenue)
2. North 12th Street (Atlantic City Avenue to El Camino Real)
3. North and South 13th Street (Atlantic City Avenue to Farroll Avenue)
4. El Camino Real (North 4th Street to Oak Park Boulevard)
5. Atlantic City Avenue (North 4th Street to Oak Park Boulevard)
6. Mentone Avenue (South 4th Street to the Ash Street connection)
7. Farroll Road (South 4th Street to Oak Park Boulevard) General Plan Circulation Element Page 15
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8. Highland Avenue (South 4th Street to South 13th Street)
9. Newport Avenue (North 4th Street to Oak Park Boulevard) Local Streets: Local streets carry traffic between collector streets and the actual trafficgenerating land uses (residential, commercial, industrial etc. in nature). Local streets provide direct driveway access to public/private property. Local streets are not intended to carry through traffic except in instances where they are located in commercial or industrial areas. To carry as little traffic as possible, local streets are often designed to turn, curve or cul-de-sac. The use of signage, signals, speed bumps, street striping and other “traffic calming” measures are all valid ways to discourage through traffic on local streets.
The purpose of local streets is to provide direct access to/from adjacent property. Local streets serving residential areas should ideally carry small volumes of traffic so that neighborhood residents’ “livability” thresholds are not exceeded. The City may also consider implementing physical traffic calming measures and/or enforcing ordinance measures to restrict through truck traffic on local streets serving residential areas. Local streets should exhibit sound design qualities and should provide easy access to all emergency vehicles. City standards for the design of local streets should be strictly adhered to. At specific locations, the City may prohibit the design of cul-de-sac local streets, from a fire and emergency access standpoint.
In establishment of a “livability” threshold for the City of Grover Beach, a reasonable standard was difficult to derive because of the design of the current “grid” street system. Typical “livability” thresholds for neighborhoods in other communities range between 1000 to 3000 average daily trips (ADT) on a local residential street. However, within the City of Grover Beach, because of the “grid” design, traffic within the residential areas is spread fairly evenly over the various neighborhood streets within a current range of about 1,500 to 3,000 ADT. In the future however, this range will be within the 2,500 to 4,000 ADT range. To set the “livability” threshold too low, a number of residential streets would become eligible for traffic calming measures. Unfortunately, with implementation of those measures on any given neighborhood street within a “grid” street system, would only force traffic to the adjacent neighborhood street, creating or aggravating a traffic volume and speeding problems on that street. Ultimately, one could end up traffic calming all of the neighborhood streets only to find the resulting traffic volumes to be the same as if none of the streets received traffic calming measures. Therefore, for Grover Beach, the threshold of 4,000 ADT was established.
Future Street Improvement Projects
The future street improvement projects to be included in the City’s Transportation Capital Improvement Program are as follows:
Grand Avenue –
• Construct “Downtown Project” improvements between 8th and 11th Streets • Plan and Construct similar “Downtown Project” improvements between SR 1 and 8th Streets, including enhancements to the 4th Street intersection to facilitate truck travel movement as it is at the crossroads of both the east-west and northsouth truck routes through the City. • Plan and Construct similar “Downtown Project” improvements between 11th Street and Oak Park Boulevard
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North Oak Park Boulevard - Widen between Brighton and Ramona Avenues to 4 lanes 4th Street – Widen and extend to 4 lanes, including realignment to align with The Pike between Trouville Avenue and The Pike
The Pike – Widen and extend to 4 lanes between 4th Street and Oak Park Boulevard B.2 TRAFFIC CONTROLS
Traffic can be controlled using various methods. Signal lights, signs and striping are all effective ways of directing and controlling traffic. The design of the circulation system, in itself, can also help control traffic. The width of the roadway, hills, and corners are all ways in which the design of the road system influences traffic movement.
It is essential that the design of a roadway reflect the intended speed of the traffic the roadway will carry. If the operational speed of traffic on the roadway is intended to be relatively low, say 25 m.p.h., then the roadway width should be kept relatively narrow and the use of curves should be considered. If the intended operational speed of the traffic is higher, say 40 or 45 m.p.h., then a wider, straighter roadway should be used.
Studies have shown that over 80% of drivers exceed the speed limit at some time in their lives.
As a safety factor, roads are currently designed to carry traffic at operational speeds 10-20% higher than the posted speed shown on speed limit signs. This is to ensure that, in the event that people do speed, they won't lose control of their vehicle and injure themselves and others.
The relative safety that a driver feels influences the actual driving speed at least as much as the posted speed limit. Many people speed consciously, risking a speeding citation because they feel the posted speed is too low or they are just in a hurry. The majority of people will not drive faster than a speed at which they feel safe, regardless of the posted speed limit. The City shall consider implementation of traffic calming measures and additional traffic control measures as potential ways to control traffic speeding.
At present, there are nine traffic signals located within the City of Grover Beach. These traffic signals are primarily located along Grand Avenue; at the intersections with SR 1, 4th Street, 8th Street, 9th Street, 10th Street, 13th Street 16th Street and at Oak Park Boulevard and at the Oak Park Boulevard/El Camino Real intersection. Other intersections are controlled by two way or all-way "Stop" signs or "Yield" signs.
Over the next 20 years, the life span of a General Plan Element, additional traffic signals will be needed to ensure the continued flow of traffic on the City's major streets. Based on Citywide traffic projections, additional signals, as shown on Figure CE-1, may be needed at the following intersections and elsewhere on the City’s street system as determined from traffic signal warrant analysis based on the Caltrans’ Traffic Manual:
Atlantic City Avenue/North 4th Street
Oak Park Boulevard/ Street North of Grand Avenue between Atlantic City Avenue and Brighton Avenue
Oak Park Boulevard/Farroll Road
Oak Park Boulevard/The Pike
Oak Park Boulevard/Mentone Avenue
Farroll Avenue/4th Street
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Obviously, land use decisions, growth trends and funding capabilities can and will play a major factor in the timing of the above improvements.
B.3 TRUCK ROUTES
Many communities have established truck routes as a means of reducing conflicts between incompatible uses. By prohibiting or restricting trucks from some residential streets, the noise, safety and structural pavement deterioration problems caused by trucks can be eliminated or minimized. At the same time, it is essential to ensure adequate truck access to all commercial and industrial locations.
Presently, trucks are prohibited by Ordinance only on Atlantic City Avenue. This Ordinance was adopted in response to numerous citizen complaints regarding the safety of children traveling to and from Grover Heights Elementary School. While this Ordinance may make Atlantic City Avenue safer for school children, it does nothing toward achieving the citywide goal of establishing a system of truck routes whereby trucks and all other uses can peacefully coexist. The problem of trucks in residential neighborhoods occurs in many areas throughout the City, not just in the Grover Heights area.
It must be understood that trucks play an important role in the movement of goods and the delivery of services. Regulations establishing truck routes must not be so strict that they prohibit efficient movement of trucks within and through the City. On the other hand, as the City and neighboring communities continue to grow, the need for regulations prohibiting trucks from interfering with residential livability will also continue to grow. Therefore, in establishing a system of truck routes, careful balance between focusing trucks to primary routes that minimized community impacts and maintain reasonable truck accessibility was needed.
Shown in Figure CE-2 are the proposed truck routes within and through the City and include the following City streets:
• Grand Avenue - within City Limits
• North and South Oak Park Boulevard – from Longbranch Avenue to US 101 • Farroll Road – from South 4th Street to 14th Street
• Highland Way – from South 4th Street to 13th Street
• North and South 4th Street – within City Limits
• El Camino Real – from North 4th Street to North Oak Park Boulevard • The Pike – from South 4th Street to 13th Street
• State Route 1 Highway – within and through the City
• Ramona Avenue – from North 4th Street to Front Street • 3rd Street – from Grand Avenue to Ramona Avenue
• Front Street – from Ramona Avenue to Newport Avenue
The most widely used system of establishing truck routes is to install signs indicating the streets that trucks are allowed to use. Usually, ordinances regarding truck routes are worded to allow "reasonable access" to all businesses requiring the use of trucks. "Reasonable access" usually means that trucks are allowed to deviate from designated routes in order to reach a destination that is not located along a truck route.
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The above truck routes have largely been long established serving existing industrial areas. The most significant change in truck routing is the planned use of Ramona Avenue and 3rd Street to gain truck access to the Front Street industrial area. Previously, Front Street access was via 1st Street from/to Grand Avenue. Due to left turn access concerns both inbound and outbound associated with the adjacent Union Pacific railroad, the designated truck route has been changed. Although this new route passes existing residences, no other alternative, after much review, was determined to be better. Along with this change in truck route designation, to further protect other existing neighborhoods from truck intrusion, a Circulation Element Program has been proposed recommending traffic calming measures to further deter trucks in the neighborhood, including at minimum, Saratoga Avenue, Newport Avenue and Brighton Avenue. Additionally, to assure trucks will not use the 1st Street access, a median is proposed along Grand Avenue to restrict movement at the intersection to right turn movement only.
B.4 SCENIC HIGHWAYS/SCENIC ROUTES
The designation “scenic routes” requires a judgment of the visual qualities of an area as special and worthy of attention. There are many factors that contribute to one’s visual experience in a particular area. Therefore, the criteria below was developed to measure the scenic importance of specific routes. The following apply both to the natural environment and the urban environment: (For a detailed description of each item consult the City of Grover Beach Scenic Routes Element.)
1. Aesthetic judgment
2. Angle and duration of vision
3. Topography
4. Distant views
5. Landscape character
6. Visual impact
Using this criteria, the following have been classified as scenic routes:
1. California State Route 1 (entire length within City limits)
2. US 101
3. Grand Avenue (entire length within the City of Grover Beach)
4. Fourth Street (from Grand Avenue north)
5. Oak Park Boulevard (entire length)
6. El Camino Real (4th Street to Oak Park Boulevard)
It is the intent of this element to provide consistency with the Scenic Routes Element. Therefore, this element provides for the adoption of all the Goals, Policies, and Objectives of the Scenic Routes Element by reference.
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PART C - SECONDARY CIRCULATION SYSTEM
C.1 TRANSIT/BUS
C.1.1. South County Area Transit
The South County Area Transit (SCAT) is designed to serve the incorporated communities of Arroyo Grande, Grover Beach, and Pismo Beach; and the unincorporated community of Oceano. SCAT operates four routes, Monday through Friday, 7:30 AM to 5:30 PM. No service is provided on Saturdays, Sundays or holidays.
The SCAT system was established by a Joint Powers Agreement in 1978 involving the County Board of Supervisors, the City of Grover Beach, City of Arroyo Grande and the City of Pismo Beach. The SCAT program is administered by a board of elected officials made up of one from each of the four agencies.
SCAT operates on a fixed-route system. Buses arrive at a given stop at a given time past the hour. SCAT currently operates 4 routes, all of which serve Grover Beach. A future SCAT station is planned at Ramona Park or Ramona Avenue near 9th Street.
C.1.2. Greyhound
The Greyhound Bus Company provides regional transit service to San Luis Obispo County but does not have a bus stop in the City nor in the entire South County area.
The nearest bus depots are located in the City of San Luis Obispo or in the City of Santa Maria Connection to Greyhound is provided by SCAT’s Route 10 that maintains scheduled weekday and weekends service between south County communities, including Grover Beach, to both downtown San Luis Obispo and Santa Maria where the Greyhound stations are located. Route 10 can be boarded at the Grover Beach Multimodal station C.2 RIDESHARING
The Federal Highway Administration started giving serious consideration to the concept of ridesharing in 1967. The desire to reduce air pollution and urban congestion together have maintained the ridesharing program.
The San Luis Obispo Regional Ridesharing Program was authorized by the San Luis Obispo Council of Governments in October of 1979. The program got underway in early 1980. The County Engineering Department was assigned the operation of the program. Caltrans funds the program including a full-time ridesharing manager. It is reasonable to expect a 10% increase in carpooling.
C.3 BICYCLE CIRCULATION
For the past 50 years the extensive road networks constructed to serve the automobile-based transportation system have included only marginal provisions for bicycle use. However, a resurgence of the bicycle as a vital mode of transportation is occurring as a result of automobile- General Plan Circulation Element Page 21
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oriented transportation difficulties, economics, recreation, leisure time availability, physical fitness needs and concern for the environment. This interest is reflected in increasing public pressure for pathways and routes where bicycles can be ridden in relative safety.
Senate Bill 277 (Statutes of 1975} established the California Bikeways Act. The Act included provisions requiring the State Department of Transportation to establish "recommended minimum general design criteria for the development, planning, and construction of bikeways..."
Safety is one of the most important aspects to consider when planning bicycle facilities. Most bikeway-related accidents occur because of unsafe or illegal practices by bicyclists, which are usually compounded by poor road conditions, and motorists who are not aware of bicyclists.
The leading violations of bicyclists are: 1) riding on the wrong side of the road, 2) failure to yield when entering the roadway, 3) failure to obey traffic signs and signals; and 4) riding at night without lights.
Bikeway Designations: The term "Bikeway" is used to define all facilities that explicitly provide for bicycle travel. The Department of Transportation has developed different definitions that are used to systematically categorize different types of bicycle facilities. Bikeways, then, can be anything from fully grade-separated facilities to, simply, signed streets. The three classes of bikeways are Bike Paths (Class I), Bike Lanes (Class II), and Bike Routes (Class III).
1. Bike Paths (Class I): Class I Bike Paths are completely separated right-of-ways designated for the exclusive use of bicycles. Cross-flows by pedestrians and motorized vehicles are minimized.
2. Bike Lanes (Class II): Class II Bike Lanes are restricted right-of-ways designated for the exclusive or semi-exclusive use of bicycles. Travel by motor vehicles or pedestrians is not allowed; however, vehicle parking may be allowed if there is sufficient space available for both the bicycle lane and the parking lane. Cross flows by motorists are allowed, for example, to gain access to parking facilities or adjacent land uses. In most cases, Class II Bikeways require a lane of at least four feet of well-maintained pavement for the cyclist to ride on.
3. Bike Routes (Class III): Class III Bike Routes are shared right-of-ways either on the street or on the sidewalk, and are designated by signs placed on vertical posts or markings stenciled on the pavement. Any bikeway which shares a through-traffic rightof-way with motor vehicles and pedestrians is considered a Class III bikeway.
The City currently has no Class I Bike Paths. With the City largely built out, it is not anticipated that new Class I Bike Paths will likely be planned and constructed. In addition, in that the City is composed of many wide streets on a grid pattern, the opportunity to create a safe and efficient system of Class II Bike Lanes and Class III Bike Routes is immense. Although a Class I Bike Path may not be built within the City, as indicated by San Luis Obispo Council of Governments (SLOCOG) regional bikeway master plan, use of the Highway 1 and Union Pacific railroad corridor and right of way for a regional Class I bike path is in the planning for which funding is being sought.
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Shown on Figure CE-3 is a proposed Bikeway Master Plan that identifies likely bicycle travel corridors throughout the City. A determination of whether these bicycle travel corridors should be improved as Class II bike lanes or Class III bike routes is subject to a separate study.
The differences between Class II and Class III bikeways are primarily the factors of safety and cost. Class II bikeways are considered somewhat safer because motor vehicle and bicycle lanes are separated by a 6" solid white line. Class III bikeways, however, need not be separated from motor vehicle lanes. They may use signing or markings on the pavement to alert motorists to the presence of bicyclists. Because the installation of Class II bikeways may involve moving, sandblasting and repainting vehicle lanes and center divider striping, it can be considerably more expensive than the Class III alternative.
Should the City decide to undertake the installation of a bikeway system, prioritizing of routes would be essential. The most heavily traveled routes would need to be improved first.
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C.4 PEDESTRIAN CIRCULATION
Providing a safe and convenient system for pedestrian circulation is an important concern of the Circulation Element. Sidewalks provide a relatively safe area for pedestrian movement because they are separated from most other forms of transportation. Consistent with recent legislation under the American Disabilities Act (ADA), all existing and planned pedestrian improvements should allow access to all people and comply with the design guidelines as set forth within the Act.
The first priority access for sidewalk improvements should be near schools and school bus stops. Sidewalk improvements should be constructed in these areas first if capital improvement projects are undertaken by the City or if assessment districts are formed. Assessment districts and capital improvement projects for other purposes, such as street widening, may include the installation of curbs, gutters, and sidewalks.
The second priority areas for sidewalk improvements shall be in commercial districts. A considerable network of sidewalks exists in commercial areas of the City. To further encourage and enhance pedestrian circulation, conditional approval of any development proposal by the Planning Commission and City Council needs to include a requirement that the applicant install curbs, gutters and sidewalks where they do not currently exist. To provide for easier access for wheelchairs, City standards, consistent with ADA requirements, call for ramps at all street corners.
C.5 OTHER TRAVEL MODES
Grover Beach can actively encourage the public to use alternative forms of transportation which, in turn, will both improve vehicular traffic circulation and reduce traffic congestion, noise and air pollution.
The nearest full service general aviation airport is the San Luis Obispo County Airport. A County airport is located in Oceano, serving as both a general aircraft and recreational aircraft facility. Additionally, airport facilities are located in Santa Maria and Paso Robles.
Currently rail service for freight (Union Pacific) is in the City of San Luis Obispo. For passengers, AMTRAK has stations in the Cities of Grover Beach and San Luis Obispo. There is both a northerly and southerly train each day connecting to Seattle and Los Angeles, respectively.
Port San Luis provides both commercial and sport fishing as well as facilities for pleasure boating.
A number of car rental and recreational vehicle rental companies serve this area.
The San Luis Obispo region contains an extensive network of pipe and utility transmission lines. The plans for the major portion of those utilities can be found in the Safety and Seismic Safety Element as well as on file in the Public Works Department.
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PART D – CIRCULATION ISSUES OF CONCERN
The following are circulation issues of concern obtained from the community within the City of Grover Beach (through Public Workshops, communications with Grover Beach Citizens, and City staff meetings). A brief discussion describing each circulation issue and potential solutions/concepts, strategies, suggestions and recommendations has also been included, where applicable.
• Grand Avenue Corridor Improvements – Grand Avenue serves as the most important “backbone” travel corridor that traverses within and through the City. A study report and Environmental Impact Report, entitled City of Grover Beach – Downtown Project (Rincon Consultants, April, 2000) presented a proposed West Grand Avenue improvement project to beautify and enhance traffic safety between 8th Street and 11th Street. Subsequent to that study report, a follow-up traffic operations study, entitled West Grand Avenue Traffic Mitigation Project (TPG Consulting, June, 2002) was prepared that studied traffic signal timing and coordination along that same segment of West Grand Avenue to further assure that good traffic flow is being maintained.
The proposed improvements along West Grand Avenue between 8th Street and 11th Street are as shown in Figure CE-4 and are planned for construction in Spring of 2004. The proposal, as shown, includes median landscaping that would eliminate the existing two-way left-turn median lane along that stretch of West Grand Avenue and incorporate intersection “bulbouts”. Specifically, the entire project would include the following:
¾ Mid-block pedestrian crossing without an activated signal in the 900 block of West Grand Avenue;
¾ Bulb-outs at all intersections from 8th Street (a total of 16), so that the length of any pedestrian crossing on Grand Avenue would be no more than 54 feet; ¾ Decorative pavers at intersections from 8th Street to 11th Street; ¾ A new traffic signal at 10th Street and 11th Street;
¾ Timing of the signals at 8th, 9th, 11th and 13th Streets to achieve a target vehicle speed of 25 miles per hour; and
¾ Landscaped median, repaired sidewalks and upgraded street furniture.
Also, within the Downtown Project, many existing features of West Grand Avenue would not be revised. The following summarizes these features:
¾ Four-lane traffic would continue along the length of Grand Avenue; ¾ Existing on-street parallel parking would remain; and ¾ All side streets perpendicular to West Grand Avenue would remain as two-way facilities.
This Downtown Project in many ways accomplishes the bridging of two very divergent goals for West Grand Avenue, that is to increase the pedestrian friendliness of the downtown, while still serving the high traffic flow demand on West Grand Avenue at acceptable Levels of Service.
General Plan Circulation Element Page 27
City of Grover Beach R658ce006FinalReport.doc
As for the balance of West Grand Avenue, upgraded, pedestrian treatments should be pursued. It is recognized that along other segments of West Grand Avenue, between Highway 1 and Oak Park Boulevard, mid-block off-street parking does desire left-turn access, however, intersection bulb-outs and sidewalk widening opportunities are desirable.
The full character of downtown will change to help create a “sense of place”.
Further, on the perpendicular streets to West Grand Avenue, consideration for angled parking should also be studied. Typically, these perpendicular streets are also wide, in excess of 50 feet curb to curb. Angled parking would enhance downtown parking availability and reduce the need for off-street parking. Additionally, with angled parking the West Grand Avenue intersection bulb-outs could be further enlarged to reduce the pedestrian crossing distance of the side streets. With reduced pedestrian crossing distances, traffic operations could also be further enhanced to maximize travel flow. • South County Family Educational and Cultural Center – To take advantage of some existing community facilities and park site, the City, partnered with a local non-profit agency to create a family educational and cultural center that would span two blocks on the north side of Ramona Avenue between 8th and 10th Streets. To take advantage of existing community facilities along this two block area, 9th Street is proposed to be terminated on the north side of Ramona Avenue to enhance pedestrian cross circulation.A cul-de-sac is proposed for 9th Street south of Brighton Avenue to provide local access for adjacent residences and parking access for the proposed park.
With a closure of 9th Street as a continuous residential collector street, some concern was raised by the City as to the potential traffic impacts to the adjacent parallel facilities of 8th and 10th Streets. Utilizing the Grover Beach traffic model, OMNI-MEANS evaluated the potential traffic flow diversions and related traffic impacts resulting with the conceptual 9th Street cul-de-sac plan. Current corridor traffic totals along 8th, 9th and 10th Streets north of Grand Avenue is about 6,000 ADT, which will grow to about 8,800 ADT by the year 2025.
Although the three streets in their design and accessibility are very similar, half of the traffic among these streets travel along 9th Street, about 3,000 ADT currently and 4,400 ADT by year 2025.
With the 9th Street cul-de-sac plan, the projected year 2025 ADT volumes on 8th Street could rise from 3,000 ADT to 4,000 ADT and on 10th Street, from 2,000 ADT to 4,000 ADT. Some additional diversion to other parallel north-south streets, such as 7th and 11th Streets, may occur that could lessen this increase. Although from a functional street capacity standpoint, those levels of traffic do not create any congestion problems, the adjacent neighborhoods may be concerned with such increases, particularly since their current levels of traffic on 8th and 10th Streets are 2,200 ADT and 1,400 ADT, respectively.
With the 9th Street cul-de-sac plan, traffic will obviously decrease on 9th Street north of Grand Avenue dropping from the projected 4,400 ADT level to likely less than a 1000 ADT. With such a diversion of traffic from 9th Street, relocation of the existing traffic signal at the 9th Street/Grand Avenue intersection to the 10th Street/Grand Avenue intersection would be advantageous. Levels of Service, not only on a daily basis, but also on a peak hour basis, will remain high in the LOS A-B range, even with the 9th Street cul-de-sac plan at the Grand Avenue intersections.
General Plan Circulation Element Page 28
City of Grover Beach R658ce006FinalReport.doc
• Front Street Commercial/Industrial Truck Access – To the north of Grand Avenue adjacent to the Southern Pacific Railroad new commercial/industrial development is occurring along Front Street that will likely increase truck travel through adjacent residential areas. This area, although planned for commercial/industrial use, has limited regional access without traversing through residential development. 2nd Street, its lone commercial/industrial connection to Grand Avenue, intersects Grand Avenue less than 100 feet away from the Southern Pacific Railroad crossing.
In evaluating alternative scenarios to improve regional accessibility to this commercial/industrial area, 2nd Street was seriously considered for improvement, including realignment of 2nd Street to align with Front Street. However, due to the close proximity of the railroad crossing on Grand Avenue, use of the 2nd Street/Grand Avenue intersection was not considered to be the best regional access solution. Eastbound left turn access from Grand Avenue would force left turn vehicles to often wait on the tracks before completing their turns. With westbound Grand Avenue traffic stopped for the Highway 1 traffic signal, delay in such left turn movement would not be infrequent.
Therefore, its is suggested that the eastbound to northbound Grand Avenue left turns be prohibited and the regional truck access to the commercial/industrial area be directed along Ramona Avenue to 4th Street and 3rd Street from Ramona Avenue to Grand Avenue.
Although upwards of eighteen (18) residences are affected, the flatter terrain and the large intersections with Grand Avenue and 4th Street for which proper turn channelization and controls can be provided, make these truck routes the safer and more appropriate solution for access to this area. With such designation along these portions of Ramona Avenue and 3rd Street, weight limits and restrictions should be placed on Brighton Avenue, Newport Avenue and Saratoga Avenue to discourage use of these residential streets to 4th Street. In addition, the City will explore the possibility of placing traffic calming measures on Atlantic City Avenue, east of 4th Street, to discourage trucks in residential areas. • Griffin Street and Huber Street Industrial Area Truck Access and Circulation – Griffin Street and Huber Street were planned industrial streets intended to extend from Farroll Road to Highland Way. However, due to the development of a residential subdivision at the south end of these streets, that closed their connection to Highland Way, an alternative industrial circulation solution needed to be identified. By policy, because large trucks are difficult to turn around as well as large emergency service vehicles, such as fire trucks, industrial areas should avoid cul-de-sacs and plan continuous streets that connect to regional travel ways without impacting residential areas.
Although Griffin Street and Huber Street were originally planned to be continuous, subsequent land use approvals eventually eliminated such possibility with residual impacts.
With the closure of the opportunity for continuous southerly access, the City identified the need for public connections between these streets and Huston Street to the east and Barca Street to the west. A public street connection between Barca and Huber and Huber and Griffin have not been accomplished.
General Plan Circulation Element Page 29
City of Grover Beach R658ce006FinalReport.doc
1. Public Street Connection between Griffin Street and Huber Street - Because the need for the public connection is a mitigation for a change in planned industrial circulation for the area, a 50 foot wide public easement should be purchased and assistance provided for the road improvement. The center line of the public easement should be placed on a property line to minimize impact to any one property owner with respect to development and use of their property.
2. Public Street Connection between Huber Street and Barca Street – An alternative public street connection for Huber Street to Griffin Street would be to connect Huber Street to Barca Street. Both streets currently have the same limitations for emergency and large truck circulation. By connecting Huber Street and Barca Street at the southern end of these streets, a continuous circulation street could be achieved. Like the difficulty in achieving a connection between Huber Street and Griffin Street no public right of way exists and therefore would need to be purchased or received in dedication.
3. Public Street Connections to Calvin Lane. Apublic street connection could be made between the south end of Barca Street to Calvin Lane. The intersection at Calvin Lane, however, would be across an existing residence. At Huber Street, a sufficient easement was not preserved such that if a connection of Huber Street to Calvin Lane were to be made, a curve and offset would be required to avoid an existing residence on the north side of Calvin Lane. Like the extension of Barca Street, the intersection with Calvin Lane would be across an existing residence. To accomplish the Huber Street extension additional right of way would be required.
4. Public Street Connection Alternatives. In addition to the above public street connection alternatives, the above concepts could be mixed and matched to achieve the truck and emergency circulation desired for this industrial area.
5. Cul-de-Sac Huber Street and Provide Private Easement – Placement of a cul-de-sac at the south end of Huber Street would provide circulation to turn around large trucks around within a public right-of-way, provided parking is prohibited along the cul-desac. Preference, however, would not be to make this move mandatory and therefore, particularly for emergency service vehicles, provision of a 20 foot private easement marked “Fire Lane” be required through at least one industrial parcel that straddles between Griffin Street and Huber Street. The centerline of the private easement could be placed on a property line if the adjacent development coordinated the easement construction concurrently.
Clearly, creating a public street connection for large truck and emergency vehicle circulation is by far the most preferred. The allowance of a cul-de-sac and private easement is only a retrofit consideration to correct a less acceptable industrial circulation condition. The only benefit in accepting a cul-de-sac and private easement solution is to potentially minimize cost to resolve the less desirable condition.
• 4th Street – The Pike Vacant Tract Circulation – One of the largest remaining undeveloped areas is in the southwest corner of the City bordered by Highland Way to the north, 13th Street to the east, The Pike to the south and 4th Street to the west. Due to the adjacent railroad tracks to the west, regional access is limited to the west and to the south. Primary General Plan Circulation Element Page 30
City of Grover Beach R658ce006FinalReport.doc
regional access to serve this area, that will develop in a mix of commercial, industrial and residential uses, will be derived from 4th Street to the northwest and The Pike to the east.
Secondary north-south access will be derived from 13th Street. 4th Street to the north connects to US 101 and is four-lanes wide as far south as Trouville Avenue, where it becomes two lanes. For the development of this large remaining tract of land within the City, 4th Street should be further widened south of Trouville Road to four-lanes and realigned to connect to The Pike in an east-west direction. The southern portion of the existing 4th Street would then “T” into this realigned thoroughfare. The realignment of 4th Street is important for several reasons, as follows:
1. Completes a defined arterial “ring road” around the City which starts at the US 101/4th Street interchange, traverses south to The Pike, heads easterly to Oak Park Boulevard and back north to the US 101/Oak Park interchange.
2. Redirects southbound regional access away from the Highway 1/4th Street intersection, which is less safe, to the 13th Street or Oak Park Boulevard intersections with Highway 1.
3. Focuses the development of this area around 4th Street and The Pike and away from Highland Way, that has limited right-of-way and topographical constraints that could present sight distance problems.
• Neighborhood Livability-based Traffic Thresholds and Traffic Calming Strategies – The ADT capacity thresholds (shown in Table CE-2 of this report) are general indicators of the traffic handling capacity of the City’s roadways. However, from a neighborhood livability standpoint, the “perceived” traffic thresholds by community residents would likely be much less than the physical capacity-based thresholds, and in the order of magnitude of 3,000 to 4,000 ADT for typical residential streets. The difference between “capacity-based thresholds” and “neighborhood thresholds” for traffic on City streets is thus important in addressing the real and perceived concerns of the public. As such, it is generally suggested that the City investigate strategies to limit daily traffic volumes on all City residential streets to less than 4,000 vehicles per day.
Many of the residential streets in the City, like Long Branch Road and Newport Road in particular, are unusually wide, much greater than normal residential street standards.
These residential streets, theoretically, even have greater physical capacity. However, these streets, like others within the residential grid of the Grover Beach circulation system are in need to have traffic levels and speeds decreased and safety and “livability” increased.
To accomplish this goal, neighborhood traffic calming strategies are incorporated into this Circulation Element update to help enhance neighborhood safety and to discourage excessive speeding and volumes of cut-through traffic on residential neighborhoods.
Specifically, the City should further pursue implementation of traffic calming measures, such as speed bumps, traffic circles, partial/full road closures, narrowing roads by adding buld-outs and or medians to slow and/or divert travel from residential neighborhoods. • Intra-City Connections – The City of Grover Beach currently has intra-city connections with Pismo Beach and Arroyo Grande and additionally with the community of Oceano.
General Plan Circulation Element Page 31
City of Grover Beach R658ce006FinalReport.doc
The Cities of Pismo Beach and Grover Beach are connected by SR 1, North 4th Street and El Camino Real (Frontage Road). The Cities of Arroyo Grande and Grover Beach are connected by Oak Park Boulevard, Grand Avenue, El Camino Real (Frontage Road), Newport Avenue, Brighton Avenue, Mentone Avenue/Ash Street, Farroll Road and The Pike. The community of Oceano and the City of Grover Beach are connected by South 4th Street, South 13th Street, South Oak Park Boulevard/22nd Street, and SR 1. These localized circulation connections between the South County (or “Five Cities” area) communities and Cities are very important. Continued coordination of improvement projects between these neighboring Cities and communities of the County will be critical to the continued success of creating a safe, efficient and uncongested City circulation system.
APPENDIX
LEVEL OF SERVICE CONCEPT
Level of Service A
1. Free flow conditions
2. Individual users are virtually unaffected by the
presence of others in the traffic stream
Level of Service B
1. Stable traffic flow
2. Freedom to select desired speeds is relatively
unaffected, but there is a slight decline in the
freedom to maneuver
Level of Service C
1. Stable and acceptable flow but speed and
maneuverability somewhat restricted due to higher
volumes
2. Operation of individual users becomes
significantly affected by the presence of others
Level of Service D
1. High density but stable flow
2. Driver experiences a generally poor level of
comfort and convenience
3. Small increases in traffic flow will cause operational problems
4. Maneuverability restricted
Level of Service E
1. Speeds reduced to low, but relatively uniform
value
2. Freedom to maneuver is extremely difficult,
frustration is high
3. Volume at or near capacity
4. Unstable flow
Level of Service F
1. Forced or breakdown flow conditions
2. Stoppage for long periods due to congestion
3. Volumes drop to zero in extreme cases
________________________________
City of Grover Beach
Bicycle Master Plan
_____________________________________________
Attachment 2
City of Grover Beach Bicycle Master Plan
City of Grover Beach
Bicycle Master Plan
Adopted January 2011
Prepared by:
Firma Landscape Architects and Planners
187 Tank Farm Rd. Suite 230 San Luis Obispo CA
805 781-9800
and
Omni-Means Engineers • Planners
934 Reserve Drive Roseville CA
916 782-8688
City of Grover Beach Bicycle Master Plan
Table of Contents
1.0 Introduction 1
1.1 Purpose and Need 1
1.2 Setting 2
1.3 Public Participation 3
1.4 Bicycle Fundamentals 4
2.0 Existing Conditions 7
2.1 Consistency and Coordination with other plans 7
2.2 Land Use 10
2.3 Estimated Number of Bicycle Commuters 11
2.4 Existing Bikeway Facilities 13
2.5 Existing End of Trip Bicycle Facilities 14
2.6 Existing Bicycle Transport and Parking Facilities for Connection 15 with other Transportation Modes
2.7 Existing Facilities for Changing / Storing Clothes and Equipment 15
2.8 Bicycle Accident Analysis 15
2.9 Existing Education and Outreach 16
3.0 Bicycle Master Plan 20
3.1 Goals, Policies and Implementation Measures 20
3.2 Proposed Bikeway Master Plan 31
City of Grover Beach Bicycle Master Plan
Table of Contents continued
4.0 Prioritization Strategy 34
4.1 Past Expenditures 34
4.2 Proposed Facility Improvements and Priorities 34
5.0 Funding Opportunities 37
5.1 Federal Funding Sources 37
5.2 State Funding Sources 40
5.3 Local and Regional Funding Sources 41
5.4 Non-Traditional Funding Sources 41
Figures and Table
Figure 1 Types of Bikeways 6
Figure 2 Land Use Map 13
Figure 3 Existing Bicycle Corridor Conditions 17
Figure 4 Bicycle Destinations 18
Figure 5 Bicycle Accidents 19
Figure 6 Bikeway Master Plan System 32
Figure 7 Bikeway Mater Plan Implementation
Table A Improvement Projects, Priorities and Cost 35
Appendix A- State Streets and Highway Code 39
Appendix B- Design Guidelines 44
Appendix C- Beach Cities Multi-Use Trail Feasibility Study (separate volume)
City of Grover Beach Bicycle Master Plan
1 1
1.0 Introduction
1.1 PURPOSE AND NEED
The Bicycle Master Plan 2010 has been adopted to facilitate implementation of the City of Grover Beach local and regional bikeway1 network. The Bicycle Master Plan is intended to fulfill the content requirements of a Bicycle Transportation Plan, as follows:
• Document existing and planned bikeways
• Establish a strategy for improving the bikeway system • Identify the priority and costs of bikeway improvements • Make the City eligible for state Bicycle Transportation Account (BTA) funds
Increasing bicycle ridership has been identified in state, regional and local plans and policies as a key strategy to reduce automobile travel and attendant air quality impacts, help reduce greenhouse gas emissions, reduce the cost of transportation and improve the health of citizens. The Bicycle Master Plan provides a blueprint to achieve a safe and well-maintained system of bikeways and multimodal transportation links, making bicycle use more accessible to more people.
The state Bicycle Transportation Act requires that local agencies adopt a bicycle transportation plan (Bicycle Master Plan) in order to qualify for funds issued by the California Department of Transportation through the Bicycle Transportation Account. The statute requires that the plans contain a minimum of eleven elements. Those elements and their location in this Plan are listed below:
1 “Bikeway” is a general term encompassing all the types of bicycle paths, lanes and routes.
City of Grover Beach Bicycle Master Plan
2 1. Estimate the number of existing and future bicycle commuters: section 2.3
2. Map and description of existing land use and settlement pattern: section 2.2
3. Map and description of existing and proposed bikeways:
sections 2.4 and 3.2
4. Map and description of existing and proposed bicycle parking facilities: section 2.5
5. Map and description of multi-modal connections: section
2.6. 6. Map and description of facilities of facilities for changing and storing clothes and equipment: section 2.7
7. Description of bicycle safety and education programs:
section 3.1.5
8. Description of citizen and community participation: section
1.3 9. Description of consistency with transportation, air quality and energy conservation plans: section 2.1
10. Proposed bikeway improvement projects and priorities:
section 4.2
11. Past bikeway expenditures and future costs to implement the plan: section 4.1.
The Bicycle Master Plan is not a general plan-level policy document or municipal ordinance: it is a Master Plan to guide the orderly implementation of future improvement projects. In order to continue to qualify for BTA funds the City needs to update the Master Plan at five year intervals.
1.2 SETTING
The City of Grover Beach is situated on a coastal plain bounded on all but the coastal side by urbanized land in Pismo Beach, Arroyo Grande and the community of Oceano. The City has limited opportunity for urban expansion beyond its current boundaries and the Land Use Element of the General Plan envisions a process of infill of existing urban areas at somewhat increased densities. The City was developed on a grid system street plan. Street rights-ofway occupy about 24% of the land area within the City, which reflects the overly wide nature of the streets.
Population for the City from 1990 to 2009 as reported by the California Department of Finance (DOF) shows the City’s population has grown slowly over the years. According to DOF, the City’s population grew from about 11,500 in 1990 to about 13,262 in 2005, City of Grover Beach Bicycle Master Plan
3 an average annual growth rate of about 0.8 percent per year. By comparison, the County population as a whole grew at an average annual rate of about 1.30 percent during the same period.
Population projections prepared for the San Luis Obispo Council of Governments (SLOCOG) for the City of Grover Beach suggests that population growth for the City will continue at a modest pace for the next twenty years, growing from an estimated population of 13,550 in 2010 to about 15,000 in 2030, which represents an average annual growth rate of about 0.54 percent. The age composition of Grover Beach residents is very similar to the composition of the County as a whole, with a sizeable portion of the population in the ‘work force’ ages of 20 to 55. The City also has a slightly higher percentage of school-aged children than the County, which suggests the need for greater consideration of safe access to schools and recreation facilities. The 2010 Census may reveal a larger percentage of residents over age 65, consistent with what has occurred in many coastal cities.2
1.3 PUBLIC PARTICIPATION
The City held a public workshop to solicit input into the Master Plan goals and priorities. The public was asked about the condition of the bikeway system, safety concerns, and the types of improvements and programs needed to improve bicycling in Grover Beach. The following summarizes the key points brought up at the workshop:
• Smoother pavement would enhance riding experience.
• A railroad track overpass would be desirable.
• The south side of West Grand Ave west of Hwy 1 needs
better maintenance of sand buildup that impedes riders. • Encourage kids to ride on the wider streets to school. • The County maintained south half of The Pike is poor for riders.
• A signal at Farroll and 13th would improve bike safety. • The West Grand Avenue corridor is a bicycling destination due to shopping and employment.
The Draft Bicycle Master Plan was presented at a public hearing of the joint Parks and Recreation Commission and Planning
Commission meeting. Members of the public, including bicycle commuters, supported the Plan and offered suggestions. A final public hearing on the Master Plan was conducted before the City Council prior to adoption of the Master Plan.
2 Census and demographic information is from the 2010 Land Use Element.
City of Grover Beach Bicycle Master Plan
4 1.4 BICYCLE FUNDAMENTALS
Bicycles are considered a vehicle, similar to automobiles, by the State of California Department of Transportation (Caltrans).
However, while bicyclists share the same rights and responsibilities of motorists, bicycle-specific facilities are often provided in an effort to enhance safety for both bicyclists and motorists. Bicyclists need to be conscious of their skill and comfort levels when choosing their travel routes. The following sections provide a brief overview of the various classes of bikeways, and some general characteristics of the different skill levels of bicyclists.
1.4.1 Classes of Bikeways
There are three classes of bikeways as illustrated on Figure 1:
• Class I – off-street paved bike paths
• Class II – on-road striped and signed bicycle lanes
• Class III – on-road shared-lane signed bicycle routes Off-street paths are facilities on a separate right-of-way from roadways, and are usually shared by bicyclists and pedestrians.
Shared paths are recreational facilities and should not be used as high-speed bikeways.
Bicycle lanes are on-street facilities that use painted stripes and stencils to delineate the right of way assigned to bicyclists and motorists, and to provide for more predictable movements by each.
Bicycle routes are signed on-street facilities that accommodate vehicles and bicycles in the same travel lane. Bicycles are permitted on most roadways; however, for safety purposes, signed bicycle routes are often found on streets with lower speeds and traffic volumes.
1.4.2 Bicyclist Skill Levels
The American Association of State Highway and Transportation Officials, or AASHTO, published the Guide for the Development of Bicycle Facilities in 1999. This guide provides descriptions for the three general skill levels of bicyclists, as summarized by the A, B, and C typologies below:
• Advanced or experienced riders are generally using their bicycles City of Grover Beach Bicycle Master Plan
5 as they would a motor vehicle or for advanced exercise activity.
They are riding for convenience and speed and want direct access to destinations with a minimum of detour or delay, and they are typically comfortable riding with motor vehicle traffic. • Basic or less confident adult riders may also be using their bicycles for transportation purposes, but prefer to avoid roads with fast and busy motor vehicle traffic unless there is ample roadway width to allow easy overtaking by faster motor vehicles. • Children who require access to key destinations in their community, such as schools, convenience stores and recreational facilities. They prefer residential streets with low motor vehicle speeds, linked with shared-use paths and busier streets with well defined pavement markings between bicycles and motor vehicles, so they can avoid riding in the travel lane of major arterials.
The City’s intent is to provide opportunities to benefit all types of riders, with an emphasis on the Basic and Children skill levels.
City of Grover Beach Bicycle Master Plan
7 2
2.0 Existing Conditions
2.1 CONSISTENCY AND COORDINATION WITH
OTHER PLANS
The City of Grover Beach’s long-range plans promote the use of alternative forms of transportation. In addition to the City’s General Plan, regional plans like the San Luis Obispo Council of Governments Regional Transportation Plan, the Air Pollution Control District’s Clean Air Plan and the County’s Bikeways Plan all encourage increased bicycle use.
General Plan Land Use Element 2010
The Bikeway Master Plan is consistent with, and furthers, the goals and policies of the 2010 General Plan Land Use Element, including the following policies (emphasis added):
LU-1.2 “Complete” neighborhoods. In general, the City will promote the establishment and preservation of “complete” neighborhoods that exhibit the following characteristics:
d. A complete and interconnected system of roadways,
bicycle and pedestrian paths, and transit stops that link the neighborhoods…
LU-1.3 Creating Walkable Neighborhoods. Neighborhoods should be protected from intrusive traffic. All neighborhood street and circulation improvements should favor the pedestrian and local traffic over pass-thru traffic. Vehicle traffic on residential streets should be slow. To foster suitable traffic speed, street design should include measures such as narrowing lanes, creating bikeways on designated routes….
LU-6.1 West Grand Avenue area….
City of Grover Beach Bicycle Master Plan
8 • Implement a bike route plan connecting the West Grand Avenue area with the butterfly grove and regional bicycle systems serving the Cities of Pismo Beach and Arroyo
Grande and linked with the regional DeAnza Trail.
LU-6.2 Beach Front Lodge. The City will actively pursue development of the Beach Front Lodge site with a hotel/convention center that incorporates at least the following general features:
c. Pedestrian, bicycle and transit connections to the beach, the dunes, the train station and mixed-use visitor-serving development east of Highway 1.
LU-6.3 Multi-modal Transit Center…..Development of this site should incorporate the following features:
c. Pedestrian and bicycle connections to the train station, the beach and surrounding visitor-serving development
and the County recreational vehicle park.
Goal LU-10: To provide for the day-to-day needs of Grover Beach residents by establishing neighborhood-serving businesses within walking and biking distance of surrounding neighborhoods.
LU-18.4 Regional planning. The City will encourage regional planning and growth management throughout the County, and in cooperation with neighboring cities. The City should coordinate planning with neighboring communities, San Luis Obispo County, and the San Luis Obispo Council of Governments (SLOCOG) to craft regional solutions for regional issues such as affordable housing and transportation funding.
Implementation Measures
• Actively participate in the regional planning programs including (but are not limited to):
The Regional Transportation Plan and the Air
Quality Management Plan
LU-19.2 Link and define neighborhoods. The City shall use the circulation system and the pedestrian and bicycle pathway system as important structural elements to link and define neighborhoods and districts in Grover Beach.
Implementation Measures: • Incorporate roadway, pedestrian, City of Grover Beach Bicycle Master Plan
9 transit and bicycle circulation facilities as part of the CIP.
LU-20.2 Pedestrian amenities for commercial areas. New
commercial and office development should promote walking, bicycling and public transit, especially in the central business district/civic center and the west Grand Avenue/beach area.
Circulation Element
The Bikeway Master Plan is consistent with and furthers the goals and policies of the 2005 Circulation Element, including the following policies (emphasis added):
Goal 2: promote alternative travel modes, including transit, pedestrian, bicycle, rail and air circulation systems.
Policy 2.1: Provide for adequate and safe alternative access to schools parks and shopping areas within the City.
Program 2.1.1: The City shall plan and require construction of bikeways, sidewalks and pedestrian accessways to all major destination points within the City.
Policy 2.3: Encourage bicycle transportation.
Program 2.3.1: The City shall create/update a Bikeway Master Plan to guide the orderly provision of bikeway facilities throughout the City.
Program 2.3.2: The City shall consider standards to provide opportunities for bicycle lanes on future road construction and along the Grand Avenue corridor.
Program 2.3.3: The City shall integrate local bikeway planning with regional plans.
Program 2.3.4: The City shall encourage the provision of bicycle support facilities at major bicycle destination points.
Program 2.3.5: The City shall continue and expand bicycle safety education programs.
Program 2.3.6: The City shall seek Bicycle Transportation Account funds and other funding to complete a comprehensive bikeway system within in the City.
Beach Cities Multi-Purpose Trail Feasibility Study (draft) The Beach Cities Multi-Purpose Trail Feasibility Study identifies route options for a multi-use pedestrian and bicycle trail linking the City of Grover Beach Bicycle Master Plan
10 City of Grover Beach with the cities of Pismo Beach and Arroyo Grande, and the community of Oceano, generally in the Highway 1 corridor area, with an eastward link to Arroyo Grande along Pismo Lake. The Study is incorporated by reference into the Bicycle Mater Plan and as a stand-alone volume (Appendix C). The multi-use trail is intended to promote alternative forms of transportation and provide new recreational opportunities consistent with the goals set forth in the City of Grover Beach’s General Plan, County of San Luis Obispo’s Parks and Recreation Element, and City of Pismo Beach’s Pismo Creek Recreational Path Project Study Report and Bicycle and Pedestrian Master Plan.
The trail corridor is located within the jurisdictional boundaries of the cities of Grover Beach, Pismo Beach, Arroyo Grande and
unincorporated areas of San Luis Obispo County (Oceano). The proposed trail traverses almost six miles and consists of a combination of Class I and Class II facilities with connections to neighborhoods, schools, parks, downtown Grover Beach,
employment centers and planned regional trail facilities.
San Luis Obispo County Bikeways Plan
The Grover Beach Bicycle Master Plan complements the County Bikeways Plan (2005 Update) adopted by the Board of Supervisors.
Regional bikeway connectivity is an important aspect of this Plan and linking with county routes is key to providing access to important regional destinations, where feasible.
San Luis Obispo County Clean Air Plan
In order to maintain state compliance of air quality standards, the San Luis Obispo Air Pollution Control District encourages the use of bicycling as an alternative to the automobile. The Clean Air Plan encourages municipalities to improve bicycle facilities and promote bicycling. The Bicycle Master Plan is consistent with the alternative transportation strategies of the Clean Air Plan.
SLOCOG Regional Transportation Plan
The San Luis Obispo Council of Governments is responsible for preparing the Regional Transportation Plan (RTP), a major transportation planning document for the region. This Plan supports the policies of the RTP’s Non-Motorized Transportation Program.
2.2 LAND USE
The City of Grover Beach contains important coastal lands used City of Grover Beach Bicycle Master Plan
11 primarily for recreation, the Union Pacific Railroad, and adjoins US 101, a major regional transportation corridor. The City adjoins the cities of Arroyo Grande and Pismo Beach and the community of Oceano. The circulation system adjoining Arroyo Grande to the east is well developed and provides a relatively seamless web of circulation routes for bicyclists. The City’s streets join Pismo Beach less seamlessly, with State Highway 1 being the single link at the west end of the City and 4th Street and Oak Park Boulevard overpasses at US 101 linking to Pismo Beach to the north. The City contains three elementary schools, six municipal parks, Pismo State Beach and a multimodal
transportation facility on the Union Pacific Railroad near State Highway 1 and West Grand Avenue. The Land Use Element land use category map is shown on Figure 2.
2.3 ESTIMATED NUMBER OF BICYCLE
COMMUTERS
For most people these trips are within bicycling or walking distance.
In Grover Beach, with the moderate climate and flat and rolling terrain, bicycling and walking are suitable modes for many types of local trips and for connections between other modes of travel. In addition, the climate, recreational and scenic features of the beach area of the city attract many residents and tourists alike who bicycle, walk and hike for exercise and pleasure.
In general, bicycle trip purposes can be divided into two broad types, commuter and recreational. Commuter use constitutes any time a person uses a bicycle for a primary purpose trip, such as to school, work, or the grocery store. In particular, all the schools in the City are located within riding distance for student in their enrollment areas. Recreational use is any trip designed to provide outdoor fun and exercise or for non- primary trips.
Census data indicates that in San Luis Obispo County as a whole the per capita annual automobile vehicle miles traveled is 10,503.
Only 5% of the population walks or rides a bicycle to work, in Grover Beach the portion who walk or ride is 3.5%, less than the County overall, and this in a highly organized grid system of streets. The percentage of bicycle trips within this total 1.2% or about 73 commuters.3 By comparison, the national average for bicycle commuters is 0.44%, while the California average is 0.81%. 3 http://library.slocog.org/PDFs/Census/03.%20Grover%20Beach/grover2000.pdf City of Grover Beach Bicycle Master Plan
12 According to the Pismo Beach Bicycle and Pedestrian Master Plan, bikeway improvements appear to induce more commuter bicycling.
A survey in the City of San Luis Obispo showed 54% of the non-bike commuters would consider biking if improvements were made to the City’s bike system. Public testimony at the several hearings for the Grover Beach Bicycle Master plan echoed this sentiment. Based on these factors the number of bicycle commuters is expected to grow from the current 73 commuters with implementation of the Bicycle Master Plan.
Census data shows 5,624 workers in Grover Beach use personal vehicles or carpool to get to work. If 54% of these consider biking and 20% of those actually do start to use bikes to commute, the bike commuter population would increase by 607 persons.
City of Grover Beach Bicycle Master Plan
14 The RTP indicates that: “research has found that people are more likely to ride a bicycle if certain basic facilities are present. These include the following, in priority order: more bike lanes; separated bike lanes from traffic; less cars and trucks on the road; secure parking spaces; smoother roads; closer proximity to work place; showers at work; riding companions; and flexible work schedules.
Implementation of these provisions could encourage more people to ride or walk for primary trips.”4
2.4 EXISTING BIKEWAY FACILITIES
The existing bikeway facilities and conditions with the Circulation Element adopted bikeway corridors in the city are shown on Figure 3-Existing Conditions. There are about 11.1 miles of bikeways in the city designated in the Circulation Element. Figure 3 illustrates the status of each planned or existing segment. Well over half the planned bikeways need striping and legends.
Figure 4- Bicycle Destinations shows the city in a regional context with destinations such as schools, libraries, parks, libraries, major employment centers, and multi-modal transit and transfer points and facilities. The regional context is shown because bicyclists are conscious of destinations, not municipal boundaries.
2.5 EXISTING END OF TRIP BICYCLE PARKING
FACILITIES
Existing end of trip bicycle facilities include bicycle parking and lockers at schools, civic buildings, major commercial centers. The nearest regional park-and-ride facility is in Arroyo Grande at Halcyon Road and US 101. The Ramona Transit facility has some bicycle racks. Only one City park has bike racks. There is a small bike rack at the Beach area (four bikes). The schools and one or two commercial centers have bike racks. There are no sidewalk racks downtown,
The development process can require major employers to provide bicycle facilities including lockers, consistent with recommendations from the Air Pollution Control District to reduce vehicular emissions by encouraging bicycle commuting. The City Municipal Code requires bicycle projects for certain types of development projects as shown below:
4 Regional Transportation Plan Vision 2025, San Luis Obispo Council of Governments City of Grover Beach Bicycle Master Plan
15 • Neighborhood, community, and convenience shopping
centers or freestanding commercial uses: 5% of vehicle
requirement
• Offices: 7.5% of vehicle requirement
• Industrial uses: 7.5% of vehicle requirement
A review of city parks and major businesses indicates provision for bike parking (racks) are not always present or limited in number of bikes that can be parked (Figure 3).
2.6 EXISTING BICYCLE TRANSPORT AND PARKING
FACILITIES FOR CONNECTION WITH OTHER
TRANSPORTATION MODES
Bicycle transport and parking facilities do not exist at the train depot.
The regional bus system has bicycle racks available on all buses in the South County for transport of bicycles. Bicycle racks and a small bicycle locker exist at the Ramona transit center on Ramona Avenue near 9th Street. Other bicycle lockers are at the Rideshare Park and Ride facility at Halcyon Road and US 101 in Arroyo Grande.
2.7 EXISTING FACILITIES FOR CHANGING /
STORING CLOTHES AND EQUIPMENT
During the development review process, the City looks at ways to minimize impacts to traffic and air quality by requiring measures that allow people to ride to work. The Air Pollution Control District provides recommended measures to be applied to project conditions of approval that would reduce auto dependency. For commercial projects anticipated to have a large number of employees, one of these measures may be to include bike commuter facilities for changing clothes and storing clothes and equipment. However, the City does not keep and inventory of these types of facilities. Figure 6 identifies locations were these facilities may be desirable.
2.8 BICYCLE INCIDENT ANALYSIS
Figure 5-Bicycle Accidents shows the distribution and type of bicycle related traffic accidents from April 2007 to April 2010 from City police records. There were 43 reported incidents with 10 incidents City of Grover Beach Bicycle Master Plan
16 resulting in property damage and 33 involving injury and / or hit and run. Fault was assigned to bicyclists in the majority of cases. The distribution of accidents cluster along Grand Avenue and the first blocks north and south of West Grand Avenue, Oak Park Boulevard, 13th Street and 16th Street.
The accident rate is about 11 per year and an average of 0.0008 incident per 1,000 population.
2.9 EXISTING EDUCATION AND OUTREACH
Existing education and outreach programs available in the San Luis Obispo region include the following:
• Safe Routes to School: SLO Regional Rideshare
(www.rideshare.org) works with schools to offer individualized programs including Parent Surveys, Mini Grants given to promote cycling in the community, Bike Assemblies (a ride of recreational cycling in large groups ending with a presentation of bicycle education), and Bike Rodeo, a bicycle safety training and education for elementary school children.
• Employee Incentive Programs: SLO Regional Rideshare offers an employer Transportation Choices Program that helps employers promote bicycling, walking, carpooling, and riding the bus to work to reduce the employers’ need for car parking spaces. This program may provide financial incentives or only promotional materials.
• Bike Valet: Bike Valet is a service that is offered by the San Luis Obispo County Bicycle Coalition (SLOCBC). This service is usually for large city events to reduce car use and encourage bike travel.
• Bicycle Confidence Workshop: These workshops are a series of classes offered by the SLO Bike Coalition to teach adults safe bicycle riding; a fee is required for the class.
City of Grover Beach Bicycle Master Plan
20 3.0 Bicycle Master Plan
3.1 GOALS, POLICIES AND IMPLEMENTATION
MEASURES
The following Goals, Policies and Implementation Measures, and the Bikeway Master Plan Exhibit (Figure 6), provide the City with specific measures for improving the bicycle facilities within the city limits. Unless otherwise identified, it is assumed that Community Development and Public Works Department staff will be responsible to establish or undertake specific implementation measures. It should also be noted that the policies identified in this document are not organized in any particular order of priority. The City should review the Bicycle Master Plan document periodically as to the priority of implementation based on feasibility to implement and available funding.
3.1.1 Bikeway Route Development
Goal 1: A comprehensive network of bicycle and trail
facilities that connect residential neighborhoods to
commercial areas, parks and schools.
Goal 2: A safe, convenient and connected bikeway
system that meets the transportation and recreational
needs of riders of all skill levels and complements
other transportation types including automobiles,
transit, trains and pedestrians.
Goal 3: Provide a balanced transportation system
consistent with the General Plan Circulation Element
that provides residents a variety of transportation
choices including automobile, transit, bicycle, and
pedestrian options.
City of Grover Beach Bicycle Master Plan
21 Policies
1. Provide a range of bikeway types, including bike
lanes on arterial streets, bike lanes on selected
collector streets, bike routes on selected low
volume/low speed streets and off-street bike paths.
2. Provide convenient connections between residential
areas, schools, parks, public transit stops, shopping
centers, employment centers and other destinations.
3. Work cooperatively with neighboring jurisdictions to pursue connections to neighboring jurisdictions to
ensure regional bicycle accessibility. Coordinate with
Pismo Beach, Arroyo Grande and the County to
ensure bicycle lane striping and signage connects
seamlessly at city limits on Grand Avenue, Oak Park
Boulevard, 4th Street, Mentone / Ash Street, Farroll
Road, the Pike (south side improvements) and
Highway 1.
4. Work with neighboring cities to identify opportunities for development of a Beach Cities Multi-Use Trail in
the Beach / Highway 1 corridor.
5. Promote land use development that enhances
connectivity for transportation and recreation use, and lessens the distance of bicycle and pedestrian travel
between uses.
6. Designate Class III on-street bike routes to provide connections between or to Class I and Class II
bikeways in situations where there is not adequate
street width or right-of-way, or as an interim facility until the street can be widened to accommodate a
Class II bike lane. ,
7. Where a bikeway designation transitions from a
Class II bike lane to Class III bike route, signs shall be installed to inform motorists that bicycles will be
sharing the road.
8. Locate bicycle crossings at appropriate intervals
City of Grover Beach Bicycle Master Plan
22 along City roadways as determined by the City
Engineer. Work with Caltrans to provide safe and ,
convenient crossings of State highways and freeways
at regular intervals.
9. Provide bicycle signal detectors per local and state law (AB 1581) at new or significantly modified
signalized intersections with bike lanes and, if feasible, retrofit existing traffic signals so that bike detection is provided.
10. Evaluate signal timing at intersections that do not allow sufficient time for cyclists to clear the
intersection.
11. Provide continuity in the design and consistent
construction of bikeway facilities.
12. Work with Union Pacific Railroad Company
(UPRR) and the California Public Utilities Commission
(CPUC) to plan and construct safe and convenient
crossings of the UPRR railroad tracks and right-ofway.
Implementation Measures
1. Bikeway construction projects shall conform to the
City Construction Standards, and state and federal
standards.
2. City and private development projects shall be
reviewed for conformance with the goals, policies and
implementation measures of the Bicycle Master Plan.
3. The Public Works Department shall work with other
departments to create a checklist for the evaluation of development projects for conformity to the Bicycle
Master Plan.
4. The City shall consider participating in regional
bicycle and pedestrian planning activities.
5. The City shall coordinate bikeway system projects
internally and with adjacent jurisdictions, where
appropriate.
City of Grover Beach Bicycle Master Plan
23 6. The City shall provide training for appropriate staff, commissions and committees on the guiding principles
of bicycle and pedestrian system transportation
planning, design and maintenance.
3.1.2 Bikeway support facilities
Goal: A comprehensive bikeway system with
adequate support facilities to serve the needs of
commuter and recreational bicycle riding.
Policies
1. Provide support facilities such as trailhead parking lots, route map displays, rest areas/benches, drinking
water, and bike racks along bike routes. Support
facilities may be provided with parks and other public
facilities or provided separately.
2. Conveniently locate bike racks and other short-term
parking facilities at city parks and recreational facilities, state parks, schools and educational institutions, the
train depot and business entrances.
3. Provide safe, secure and covered long-term bike
parking (bike lockers, bike rooms, bike cages) at city
parks and recreational facilities, employment sites and Park and Ride facilities.
4. Encourage major employment centers and
commercial uses to provide amenities such as
showers and changing facilities onsite for employees
that bicycle to work or while at work.
Implementation Measures
1. The City shall consider updating the Municipal Code
(Zoning Ordinance) to include additional requirements
for bike facilities as detailed in measures following.
2. The City shall develop standards for bicycle parking City of Grover Beach Bicycle Master Plan
24 in the public realm of Downtown Core and other
pedestrian activity areas.
3. The City shall adopt guidelines for and encourage
the installation of showers and changing facilities for employees at major employment sites.
4. The City shall consider partnerships with public and private facilities for use of showers and changing
rooms by commuting or touring bicyclists.
5. Designated bike routes shall include signs informing motorists of the presence of bicyclists and information signs informing cyclists of upcoming destinations in
accordance with California Manual of Uniform Traffic
Devices and the City Standards.
6. The City shall provide destination signs, trail maps, mile markers, open space and bikeway regulation
signs on bike paths where appropriate.
7. Require development projects (private and public) to install amenities such as bicycle racks, lockers and
showers as a condition of approval.
3.1.3 Maintenance
Goal: Provide well maintained bikeways and support
facilities to ensure preservation of the public capital improvements and to provide safe and convenient
facilities for cyclists and other trail users.
Policies
1. Sweep all streets with Class II or III designation at regular time intervals.
2. Develop guidelines for routine maintenance and
long-term maintenance of Class I (off-street) bike
paths.
3. Review street maintenance overlay projects and
other construction projects within the public right-ofway and along designated bikeways for conformance City of Grover Beach Bicycle Master Plan
25 with the Bicycle Master Plan. Where facilities are not in conformance with the Bicycle Master Plan and current
City standards, the facilities may be brought up to
standards where determined feasible.
4. Require construction projects that damage existing
bicycle facilities to restore those facilities to preconstruction condition at developer/contractor expense.
5. Construction projects within public right-of-way
should address bicycle safety and movement per
Federal, State and Local standards.
6. Require developers/contractors to maintain clear
and clean paths of travel for cyclists when construction operations occur adjacent to Class II and III bikeways.
Implementation Measures
1. The City shall inspect bikeways and support
facilities on a regular basis.
2. The City shall seek funding from new development
projects for bikeway maintenance.
3. The City shall work cooperatively with local bicycle groups, neighborhood associations, and businesses to
establish a bikeways maintenance program that
address litter cleanup, pet waste cleanup, and as
appropriate other bike path and open space
maintenance activities.
4. The City shall update the Construction Standards to
include standard provisions for Traffic Control Plans
per the following:
• Construction signs should be placed outside bike
lanes where feasible;
• Where a bike lane will be closed for an extended
period, advance warning signs may be provided for
bicyclists.
3.1.4 Enforcement
City of Grover Beach Bicycle Master Plan
26 Goal: Provide a functional enforcement programs to
increase bicycle safety and reduce violations and
bicycle injuries.
Policies
1. Strictly enforce bicycle safety laws focused on
helmets for children and adults, failure to stop/yield, wrong way bike riding, and night riding without
lights/reflectors.
2. Strictly enforce the California Vehicle Code and
local laws relating to motorist failure to yield or stop for cyclists, excessive motor vehicle speed, and driving
under the influence.
Implementation Measures
1. The Police Department shall be involved in periodic
review of the accident and safety aspects of the
updates to the Bicycle Master Plan.
3.1.5 Education
Goal 1: Increase bike rider and motorist awareness of
the rights and responsibilities of bike riders in order to create a climate of acceptance for bike riding, reduce
bike rider violations, improve safe bicycling and driving practices, reduce collisions, and increase bicycle riding to work, school, and other destinations.
Goal 2: Increase awareness of users of multi-use
paths of the rights and responsibilities of the various users.
Policies
1. Provide education programs targeted to adults and
children that explain safe bike riding techniques and
the importance of proper helmet use, and provide
information on the city bikeway system and support
facilities.
2. Provide education programs targeted to school-age
City of Grover Beach Bicycle Master Plan
27 children that acknowledge and recognize the unique
challenges associated with child and youth bike riders.
3. Raise motorist awareness of the rights of bicyclists to ride on the road, and provide motorists information
on ways they can modify their driving behavior to more
safely accommodate bicyclists.
Implementation Measures
1. The City shall work with Regional Rideshare and the
San Luis Obispo County Bicycle Coalition to
encourage promotional and educational activities
within the community.
2. The City shall work with Lucia Mar Unified School
District to identify potential bicycle education programs in schools, and to promote Safe Routes to School
programs.
3. The City shall consider implementing a citywide
helmet promotion program.
4. The City shall develop education materials (e.g.
handouts, videos) for presentation to media, schools,
neighborhood groups, businesses and other groups
that promote bicycle safety.
5. The City shall develop criteria and promote trail
etiquette for use of off-street bike paths by bicyclists, pedestrians, equestrians (if applicable), skaters, and
persons with disabilities.
6. The City shall coordinate education and
encouragement efforts with public health agencies,
schools, and/or other social organizations.
3.1.6 Encouragement
Goal: Increase transportation and recreation bicycle
riding to work, school, play and other destinations by
50 percent by 2020, and gain acceptance of bicycle
commuting as a mainstream activity.
Policies
City of Grover Beach Bicycle Master Plan
28 1. Encourage cycling and walking through a variety of programs and coalitions with local businesses,
schools, clubs, bike shops and organizations.
2. Explore methods to provide incentives to individuals or businesses commuting to work by bicycle or
walking.
4. Support recreational bikeway facilities, programs
and events as an important part of the effort to
cultivate acceptance of bicycling among the general
populace.
Implementation Measures
1. Continue to support regional efforts to promote
biking such as May Is Bike Month, and International
Walk/Bike to School day.
2. Enhance incentives for bicycle commuting such as
May Is Bike Month.
3. Sponsor, in association with local bicycle
organizations, bicycle parking at special events.
4. Sponsor, in association with local /regional bicycle organizations or other groups, bicycle/ triathlon events and races, or other similar events.
5. Support efforts of local bicycle groups to establish a bicycle station that delivers bicycle parking, showers, restrooms, bicycle services.
3.1.7 Environmental
Goal 1: Reduce traffic, improve air quality, and reduce emissions that contribute to climate change by
providing a viable commute alternative to the
automobile.
Goal 2: Enhance public access to open space and
natural areas while minimizing the environmental
City of Grover Beach Bicycle Master Plan
29 impacts.
Policies
1. Promote the beneficial aspects of bicycling with the use of established bicycle promotional programs such
as May is Bike Month.
2. Work collaboratively with other jurisdictions to
provide bike/trail projects in the Five Cities Area and the region.,
3. Provide informational signage along Class I Bike
Paths and trails located within or adjacent to open
space areas such as Meadow Creek and Pismo
Lakes. Plan for signage that includes interpretive
signs informing the public of the environmental
resources present and directing users to behave in a
manner that reduces impacts on the open space.
4. Comply with applicable Local, State and Federal
environmental regulations.
5. Provide Class I Bike Paths and trails that have
minimal effects on the environment and natural
resources.
Implementation Measures
1. The City will coordinate with local, state and federal agencies on the planning, environmental review,
design, construction and maintenance of bike or trail
projects located within or in proximity to sensitive
environmental areas such as creeks and estuaries.
2. The City will partner with health organizations,
where appropriate, to promote bicycling and healthy
communities.
3.1.8 Funding
Goal: Secure adequate funding for construction and
maintenance of bikeways and support facilities, and
education, encouragement, enforcement and
evaluation programs.
City of Grover Beach Bicycle Master Plan
30 Policies
1. Create a bikeway system that is cost effective to
construct and maintain.
2. Maximize funding opportunities through a
combination of federal, state and local sources,
including development agreements, community
facilities districts and grants.
3. Utilize grant funds to leverage local bikeway funds.
4. Where feasible and appropriate, include bike lane
improvements consistent with the Design/Construction
Standards as part of Capital Improvement Program
projects.
5. Where appropriate, partner bike path projects with
flood control, redevelopment, utilities access, air
quality improvement and open space/ stream
restoration projects.
6. Where bikeway projects cross jurisdictional
boundaries, partner with adjacent jurisdictions as
feasible to reduce costs.
7. Consider establishing development impact fees that
can be used to improve bike facilities.
Implementation Measures
1. Submit grant applications in accordance with the
City’s guidelines as grant programs become available.
2. Coordinate bikeway projects internally and with
other agencies to determine partnering potential.
3. Continue to require new development to improve
bike facilities within their project and / or as part of roadway improvements associated with a project.
City of Grover Beach Bicycle Master Plan
31 3.1.9 Evaluation
Goal: Evaluate the effectiveness of the City’s bicycle
programs and the efforts to implement the overarching
bikeway goals of the General Plan and the Bicycle
Master Plan on an on-going basis.
Policies
1. Establish and implement a plan for regular
measurement of the amount of cycling taking place in
the City.
2. Annually review bicycle collision data to identify
commonalities and trends and identify engineering,
maintenance, enforcement, education and
encouragement efforts to reduce collisions and
injuries.
Implementation Measures
1. The City shall prepare an annual report
summarizing the bicycle program and collision data,
and identify a work plan to address any concerns in
the report.
3.2 PROPOSED BIKEWAY MASTER PLAN
The proposed Bikeway Master Plan System (Figure 6) and
Bikeway Mater Plan Implementation (Figure 7) illustrate the network of bikeways intended to serve the City and provide improved bikeway conditions for those biking through the region.
Section 4.2 and Table A list the bicycle improvement projects and priorities.
Bikeways are listed by Class I, II or III, and are defined as follows:
• Class I Bikeway (Bike Path) - Provides completely separated path for the exclusive use of bicycles and pedestrians with crossflow minimized. • Class II Bikeway (Bike Lane) - Provides a striped lane for oneway bike travel on a street or highway.
City of Grover Beach Bicycle Master Plan
32 • Class III Bike Route, Level A - Provides shared use with motor vehicle traffic, is identified by Bike Route signs. These routes are intended to have a minimum amount of paving (at least 2-ft) beyond the travel lane to provide more room for bicyclists.
• Class III Bike Route, Level B - Unsigned “bike routes” that provides “Share the Road” only signage on roads that are very narrow, winding, or difficult to widen due to physical /environmental constraints.
City of Grover Beach Bicycle Master Plan
35 4.0 Prioritization Strategy
4.1 PAST EXPENDITURES
From 2005 through 2009 the City has installed bicycle lane striping on six road segments as part of street improvement projects. The expenditure over this period was $29,639. The street segments striped include:
• West Grand Avenue Enhancement, 2nd Street to 4th Street • S. 4th Street, Seabright to West Grand Avenue
• S. 13th Street, West Grand Ave to Manhattan
• N. 4th Street, Ocean View Ave to City Limits
• N. 4th Street, West Grand Avenue to Ocean View Avenue • Meadow Creek Bridge and Storm Drain Project
In addition, the City expended $61,649 for the Longbranch Aveeue Demonstration Project study and $40,594 for the Beach Cities MultiPurpose Trail Feasibility Study.
4.2 PROPOSED FACILITY IMPROVEMENTS,
COST AND PRIORITIES
Table A summarizes the proposed bicycle facility improvements, grouped by general priority, with an estimated cost in 2010 dollars. The priorities should be re-evaluated periodically by the City based on changing needs and fund availability.
Bike Master Plan
Table A – Improvement Projects, Priorities and Cost
36 Priority Facility
type1
Project Length Cost2 Notes
1 2 Oak Park Blvd- US 101 to Saratoga:
renew stripe
1,637 lf $3,421
1 2 Oak Park Blvd- Mentone to Farroll:
renew stripe
1,742 lf $3,641
3 3 Oak Park Blvd- signage - $5,000
2 2 W. Grand Ave- Oak Park to 11th:
stripe and legend
2,587 lf $12,392
2 2 W. Grand Ave- 8th to beach:
stripe and legend
3,960 lf $18,968
2 2 Atlantic City Ave- 4th to Oak Park 5,174 lf $24,785 2 2 Saratoga Ave- 13th St to Oak Park 1,848 lf $8,852
2 2 Newport Ave- 4th St to Oak Park Blvd 5,174 $24,785
2 2 Mentone Ave- Oak Park to 4th:
Stripe and legend
4,435 $21,244
2 2 Longbranch Ave- Oak Park to 4th:
Stripe and legend
4,435 lf $21,244 14th to 16th
class 3 route
2 2 13th Street-Atlantic City to the Pike:
stripe and legend
7,550 lf $36,164 Segments will
need full street
width to
implement
1 2 El Camino Real- 101 interchange west
to City limit: Renew stripe
2,745 lf $5,738
2 2 El Camino Real- 101 interchange east
to City limit: Stripe and legend
1,478 lf $7,081
2 2 Atlantic City- 4th to Front St:
stripe and legend
1,584 lf $7,587 Segments will
need full street
width to
implement
2 2 4th Street-Trouville to south City limit:
Stripe and legend
4,382 lf $20,991 Segments will
need full street
width to
implement
2 2 The Pike/Highland Way- 13th to S. 4th: stripe and legend 1,584 lf $7,587 Install with planned
new street
3 3 12th Street-Atlantic City to ECR: class 3
signage
$1,000
4 4 Bike rack and locker at Train Depot $10,000
4 4 Bike rack program for parks $10,000
4 4 Bike locker facilities at employment centers 3 $50,000 Bike Master Plan
Table A – Improvement Projects, Priorities and Cost
TBD indicates “To be determined”
Footnotes
1. Facility Types are: 1= Class 1 path, 2= Class 2 lane, 3= Class 3 route, 4= other facility
2. Based on recent City bid, the cost per block (370 linear feet) for a Class 2 lane is $1,775 ($4.79 / lf) and includes bike lane signs (4), bike lane symbol, 6 inch strip, 10% contingency and all design and management costs. Stripe and symbol renewal only is calculated at $775 per block or $2.09 / lf. 37 4 1 Beach Cities Multi Use Trail-option D3 TBD
4 1 Beach Cities Multi Use Trail-option A
South of Grand to City limit segment
TBD
4 1 Beach Cities Multi Use Trail-option A
4th Street to ECR segment
TBD
4 1 Beach Cities Multi Use Trail-option B
South of Grand to City Limit
TBD
4 1 Beach Cities Multi Use Trail-option E TBD
4 1 Beach Cities Multi Use Trail-option F TBD
4 4 Beach Cities Multi-Use TrailUPRR bike / ped overpass bridge TBD
City of Grover Beach Bicycle Master Plan
38 5.0 Funding Opportunities
There are a variety of potential funding sources that can be used for bicycle projects, programs and plans from all levels of government.
This section covers federal, state, regional and local sources of funding, as well as some non- traditional funding sources that may be used for bicycle projects.
5.1 FEDERAL FUNDING SOURCES
The primary federal source of surface transportation funding, including bicycle and pedestrian facilities, is the Safe, Accountable, Flexible, Efficient, Transportation Equity Act: A Legacy for Users.
This Federal bill was established by Congress in 1991 with the Intermodal Surface Transportation Efficiency Act, and renewed in 1998 and extended in 2003 through the Transportation Equity Act for the 21st Century and the Safe, Accountable, Flexible, and Efficient Transportation Equity Act of 2003. Also known as the Federal Transportation Bill, it was passed in 2005 and authorizes federal surface transportation programs for the five-year period.
In late September 2009, as the 2005 federal transportation bill (SAFETEA-LU) was set to expire, a debate emerged in Congress regarding the length of time to extend the current bill while new policy is created. Rather than a simple reauthorization of existing policy, a new bill is being crafted with new policies and funding formulas, in recognition of the urgency of national needs -- obesity prevention, escalating fuel prices, the need for energy independence from Middle East oil, and perhaps most important, the battle against global climate change. In December 2009 Congress voted to extend the current bill until September 2010.
Federal funding is administered through the state (Caltrans and the State Resources Agency) and regional planning agencies. Most, but not all, of these funding programs are oriented toward transportation City of Grover Beach Bicycle Master Plan
39 versus recreation, with an emphasis on reducing auto trips and providing inter-modal connections. Many Federal programs require a local match of between 10-20%. Federal funding is intended for capital improvements and safety and education programs and projects must relate to the surface transportation system.
Federal Lands Highway Funds
Federal Lands Highway Funds may be used to build bicycle and pedestrian facilities in conjunction with roads and parkways at the discretion of the department charged with administration of the funds. The projects must be transportation-related and tied to a plan adopted by the State and Metropolitan Planning Organization.
Federal Lands Highway Funds may be used for planning and construction and is managed by the United States Department of Transportation.
Transportation, Community and System Preservation Program The Transportation, Community and System Preservation Program provides federal funding for transit oriented development, traffic calming and other projects that improve the efficiency of the transportation system, reduce the impact on the environment, and provide efficient access to jobs, services and trade centers. The program is intended to provide communities with the resources to explore the integration of their transportation system with community preservation and environmental activities. The Program funds require a 20% match and can be applied to planning, design and construction and is administered through the Federal Highway Administration.
Land and Water Conservation Fund
The Land and Water Conservation Fund is a federally funded program that provides grants for planning and acquiring outdoor recreation areas and facilities. The Fund is administered by the National Parks Service and the California Department of Parks and Recreation and has been reauthorized until 2015. Cities, counties and districts authorized to acquire, develop, operate and maintain park and recreation facilities are eligible to apply. The application deadline is in May, and applicants must fund the entire project, and will be reimbursed for 50% of costs. Property acquired or developed under the program must be retained in perpetuity for public recreational use.
City of Grover Beach Bicycle Master Plan
40 Congestion Mitigation and Air Quality Improvement Program (CMAQ) CMAQ Funds are directed to transportation projects and programs which contribute to the attainment or maintenance of National Ambient Air Quality Standards in non-attainment or air quality maintenance areas for ozone, carbon monoxide, or particulate matter under provisions in the Federal Clean Air Act.
Eligible projects include bicycle facilities.
Highway Safety Improvement Program (HSIP)
The Highway Safety Improvement Program is managed locally by Caltrans. For a project to be eligible for HSIP funds, the project must be on any public road, publicly owned bicycle, pedestrian pathway, or trail. Projects must identify a specific safety problem that can be corrected or be improved substantially.
Regional Surface Transportation Program (RSTP)
Regional Surface Transportation Program (RSTP) funding is distributed based on population, among the urbanized and nonurbanized areas of the State through Metropolitan Planning Organizations (MPOs) and Regional Transportation Planning Agencies (RTPAs). Bicycle facilities are eligible for funding through this federally administered program.
Safe Routes to School (SRTS)
Eligible projects fall under the category of infrastructure (capital improvements), or non-infrastructure (education, encouragement, enforcement). Infrastructure projects must be located within a two mile radius of a grade school or middle school. Local Caltrans representatives serve as the administrative authority on SRTS projects.
Transportation Enhancements (TE)
Federal Transportation Enhancement funds are to be used for transportation- related capital improvement projects that enhance quality-of-life, in or around transportation facilities. Facilities that qualify for TE funds include bicycle safety, education and facility projects. Transportation Enhancements projects are managed locally by Caltrans.
City of Grover Beach Bicycle Master Plan
41 5.2 STATEWIDE FUNDING SOURCES
Bicycle Transportation Account
The Bicycle Transportation Account provides state funding for local projects that improve the safety and convenience of bicycling for transportation. Because of its focus on transportation, Bicycle Transportation Account projects must provide a demonstrable level of utility for transportation purposes. For example, all in-town onstreet and paved bikeways would be good candidates for funding.
Funds are available for both planning and construction. Bicycle Transportation Account funding is administered by Caltrans and cities and counties must have an adopted Bicycle Transportation Plan in order to be eligible. The maximum amount available through the Bicycle Transportation Account is $1.2 million dollars, cities and counties are eligible to apply. All projects must be designed to the standards outlined in Chapter 1000 of the Highway Design Manual.
The application deadline is in December.
Community Based Transportation Planning Demonstration
Grant Program
This fund, administered by Caltrans, provides funding for projects that exemplify livable community concepts including bicycle improvement projects. Eligible applicants include local governments, metropolitan planning organizations and regional transportation planning agencies. A 20% local match is required and projects must demonstrate a transportation component or objective. There is $3 million available annually statewide. The application deadline is in October.
Safe Routes to School (SR2S)
To be eligible for SR2S funds, the project must be located on any state highway or on any local road. Projects must correct an identified safety hazard or problem on a route that students use for trips to and from school. Up to 10 percent of the project’s cost can fund a non infrastructure component that supports the infrastructure project. Only cities and counties are eligible to compete for funds.
State Transportation Improvement Program (STIP) All STIP projects must be capital projects (including project development costs) needed to improve transportation. Eligible projects include bicycle facility improvements and improved access to transit and are administered by Caltrans.
City of Grover Beach Bicycle Master Plan
42 Transportation Development Act
Transportation Development Act Article 3 funds are state block grants awarded monthly to local jurisdictions for transit, bicycle and pedestrian projects in California by Caltrans. Funds for pedestrian projects originate from the Local Transportation Fund, which is derived from a ¼ cent of the general state sales tax. Local Transportation Funds are returned to each county based on sales tax revenues. Article 3 of the Transportation Development Act sets aside 2% of the Local Transportation Funds for bicycle and pedestrian projects. Eligible pedestrian and bicycle projects include:
construction and engineering for capital projects; maintenance of bikeways; bicycle safety education programs (up to 5% of funds); and development of comprehensive bicycle or pedestrian facilities plans. A city may use these funds to update their bicycle and pedestrian plan not more than once every five years. These funds may be used to meet local match requirements for federal funding sources. Application deadlines vary within county transportation agencies.
5.3 LOCAL AND REGIONAL FUNDING SOURCES
Developer Impact Fees
Traffic Impact Fees placed on new development typically cover the ultimate build-out of roadways associated with project
improvements. The fees are reviewed and updated by the City periodically to reflect current economic conditions and costs to improve.
5.4 NON-TRADITIONAL FUNDING SOURCES
The Community Development Block Grant program provides money for streetscape revitalization, which may be largely comprised of pedestrian improvements. Federal Community Development Block Grant grantees may “use [these] funds for activities that include (but are not limited to): acquiring real property; reconstructing or rehabilitating housing and other property; building public facilities and improvements, such as streets, sidewalks, community and senior citizen centers and recreational facilities, paying for planning and administrative expenses, such as costs related to developing a consolidated plan and managing Community Development Block Grant funds; provide public services for youths, seniors, or the disabled; and initiatives such as neighborhood watch programs.” City of Grover Beach Bicycle Master Plan
43 Appendix A
State Highway Code
Full text of Streets and Highways code,
Section 890-894.2
890. It is the intent of the Legislature, in enacting this article, to establish a bicycle transportation system. It is the further intent of the Legislature that this transportation system shall be designed and developed to achieve the functional commuting needs of the employee, student, business person, and shopper as the foremost consideration in route selection, to have the physical safety of the bicyclist and bicyclist's property as a major planning component, and to have the Town or county to accommodate bicyclists of all ages and skills.
890.2. As used in this chapter, "bicycle" means a device upon which any person may ride, propelled exclusively by human power through a belt, chain, or gears, and having either two or three wheels in a tandem or tricycle arrangement.
890.3. As used in this article, "bicycle commuter" means a person making a trip by bicycle primarily for transportation purposes, including, but not limited to, travel to work, school, shopping, or other destination that is a center of activity, and does not include a trip by bicycle primarily for physical exercise or recreation without such a destination.
890.4. As used in this article, "bikeway" means all facilities that provide primarily for bicycle travel. For purposes of this article, bikeways shall be categorized as follows:
(a) Class I bikeways, such as a "bike path," which provide a completely separated right-of-way designated for the exclusive use of bicycles and pedestrians with cross flows by motorists minimized. (b) Class II bikeways, such as a "bike lane," which provide a restricted right-of-way designated for the exclusive or semi-exclusive use of bicycles with through travel by motor vehicles or pedestrians prohibited, but with vehicle parking and cross flows by pedestrians and motorists permitted.
(c) Class III bikeways, such as an on-street or off-street "bike route," which provide a right-of-way designated by signs or permanent markings and shared with pedestrians or motorists.
890.6. The department, in cooperation with county and Town governments, shall establish minimum safety design criteria for the planning and construction of bikeways and roadways where bicycle travel is permitted. The criteria shall include, but not be limited to, the design speed of the facility, minimum widths and clearances, grade, radius of curvature, pavement surface, actuation of automatic traffic control devices, drainage, and general safety. The criteria City of Grover Beach Bicycle Master Plan
44 shall be updated biennially, or more often, as needed. 890.8. The department shall establish uniform specifications and symbols for signs, markers, and traffic control devices to designate bikeways, regulate traffic, improve safety and convenience for bicyclists, and alert pedestrians and motorists of the presence of bicyclists on bikeways and on roadways where bicycle travel is permitted.
891. All Town, county, regional, and other local agencies responsible for the development or operation of bikeways or roadways where bicycle travel is permitted shall utilize all minimum safety design criteria and uniform specifications and symbols for signs, markers, and traffic control devices established pursuant to Sections 890.6 and 890.8.
891.2. A Town or county may prepare a bicycle transportation plan, which shall include, but not be limited to, the following elements:
(a) The estimated number of existing bicycle commuters in the plan area and the estimated increase in the number of bicycle commuters resulting from implementation of the plan.
(b) A map and description of existing and proposed land use and settlement patterns which shall include, but not be limited to, locations of residential neighborhoods, schools, shopping centers, public buildings, and major employment centers.
(c) A map and description of existing and proposed bikeways. (d) A map and description of existing and proposed end-of-trip bicycle parking facilities. These shall include, but not be limited to, parking at schools, shopping centers, public buildings, and major
employment centers.
(e) A map and description of existing and proposed bicycle transport and parking facilities for connections with and use of other transportation modes. These shall include, but not be limited to, parking facilities at transit stops, rail and transit terminals, ferry docks and landings, park and ride lots, and provisions for transporting bicyclists and bicycles on transit or rail vehicles or ferry vessels.
(f) A map and description of existing and proposed facilities for changing and storing clothes and equipment. These shall include, but not be limited to, locker, restroom, and shower facilities near bicycle parking facilities.
(g) A description of bicycle safety and education programs conducted in the area included within the plan, efforts by the law enforcement agency having primary traffic law enforcement responsibility in the area to enforce provisions of the Vehicle Code pertaining to bicycle operation, and the resulting effect on accidents involving bicyclists.
(h) A description of the extent of citizen and community involvement in development of the plan, including, but not limited to, letters of support.
(i) A description of how the bicycle transportation plan has been coordinated and is consistent with other local or regional transportation, air quality, or energy conservation plans, including, but not limited to, programs that provide incentives for bicycle City of Grover Beach Bicycle Master Plan
45 commuting.
(j) A description of the projects proposed in the plan and a listing of their priorities for implementation.
(k) A description of past expenditures for bicycle facilities and future financial needs for projects that improve safety and convenience for bicycle commuters in the plan area.
891.4. (a) A Town or county that has prepared a bicycle transportation plan pursuant to Section 891.2 may submit the plan to the county transportation commission or transportation planning agency for approval. The Town or county may submit an approved plan to the department in connection with an application for funds for bikeways and related facilities which will implement the plan. If
the bicycle transportation plan is prepared, and the facilities are proposed to be constructed, by a local agency other than a Town or county, the Town or county may submit the plan for approval and apply for funds on behalf of that local agency.
(b) The department may grant funds applied for pursuant to subdivision (a) on a matching basis which provides for the applicant's furnishing of funding for 10 percent of the total cost of constructing the proposed bikeways and related facilities. The funds may be used, where feasible, to apply for and match federal grants or loans. 891.5. The Sacramento Area Council of Governments, pursuant to subdivision (d) of Section 2551, may purchase, operate, and maintain call boxes on Class I bikeways.
891.8. The governing body of a Town, county, or local agency may do all of the following:
(a) Establish bikeways.
(b) Acquire, by gift, purchase, or condemnation, land, real property, easements, or rights-of-way to establish bikeways. (c) Establish bikeways pursuant to Section 21207 of the Vehicle Code.
892. (a) Rights-of-way established for other purposes by cities, counties, or local agencies shall not be abandoned unless the governing body determines that the rights-of-way or parts thereof are not useful as a non-motorized transportation facility.
(b) No state highway right-of-way shall be abandoned until the department first consults with the local agencies having jurisdiction over the areas concerned to determine whether the right-of-way or part thereof could be developed as a non-motorized transportation facility. If an affirmative determination is made, before abandoning the right-of-way, the department shall first make the property available to local agencies for development as non-motorized transportation facilities in accordance with Sections 104.15 and 887.6 of this code and Section 14012 of the Government Code. 892.2. (a) The Bicycle Transportation Account is continued in existence in the State Transportation Fund, and, notwithstanding
Section 13340 of the Government Code, the money in the account is continuously appropriated to the department for expenditure for the purposes specified in Section 892.4. Unexpended moneys shall be City of Grover Beach Bicycle Master Plan
46 retained in the account for use in subsequent fiscal years. (b) Any reference in law or regulation to the Bicycle Lane Account is a reference to the Bicycle Transportation Account.
892.4. The department shall allocate and disburse moneys from the Bicycle Transportation Account according to the following priorities:
(a) To the department, the amounts necessary to administer this article, not to exceed 1 percent of the funds expended per year. (b) To counties and cities, for bikeways and related facilities, planning, safety and education, in accordance with Section 891.4. 892.5. The Bikeway Account, created in the State Transportation Fund by Chapter 1235 of the Statutes of 1975, is continued in effect, and, notwithstanding Section 13340 of the Government Code, money in the account is hereby continuously appropriated to the department for expenditure for the purposes specified in this chapter. Unexpended money shall be retained in the account for use in subsequent fiscal years.
892.6. The Legislature finds and declares that the construction of bikeways pursuant to this article constitutes a highway purpose under Article XIX of the California Constitution and justifies the expenditure of highway funds therefore.
893. The department shall disburse the money from the Bicycle Transportation Account pursuant to Section 891.4 for projects that improve the safety and convenience of bicycle commuters, including, but not limited to, any of the following:
(a) New bikeways serving major transportation corridors. (b) New bikeways removing travel barriers to potential bicycle commuters.
(c) Secure bicycle parking at employment centers, park-and-ride lots, rail and transit terminals, and ferry docks and landings. (d) Bicycle-carrying facilities on public transit vehicles. (e) Installation of traffic control devices to improve the safety and efficiency of bicycle travel.
(f) Elimination of hazardous conditions on existing bikeways. (g) Planning.
(h) Improvement and maintenance of bikeways.
In recommending projects to be funded, due consideration shall be given to the relative cost effectiveness of proposed projects. 893.2. The department shall not finance projects with the money in accounts continued in existence pursuant to this article which could be financed appropriately pursuant to Article 2 (commencing with Section 887), or fully financed with federal financial assistance. 893.4. If available funds are insufficient to finance completely any project whose eligibility is established pursuant to Section 893, the project shall retain its priority for allocations in subsequent fiscal years.
893.6. The department shall make a reasonable effort to disburse funds in general proportion to population. However, no applicant City of Grover Beach Bicycle Master Plan
47 shall receive more than 25 percent of the total amounts transferred to the Bicycle Transportation Account in a single fiscal year. 894. The department may enter into an agreement with any Town or county concerning the handling and accounting of the money disbursed pursuant to this article, including, but not limited to, procedures to permit prompt payment for the work accomplished.
894.2. The department, in cooperation with county and Town governments, shall adopt the necessary guidelines for implementing this article.
City of Grover Beach Bicycle Master Plan
48 Appendix B
Design Guidelines
DESIGN GUIDELINES
This section provides basic bikeway planning and design guidelines for use in developing bikeway system and support facilities. Where noted, designs are for elements required by the State of California for compliance with Caltrans Highway Design Manual Chapter 1000 “Bikeway Planning and Design” guidelines. Otherwise, these guidelines include additional recommendations, providing information on optional design treatments. Although this information meets Caltrans requirements it is not intended to state a minimum or maximum accommodation or to replace any existing adopted roadway design guidelines.
Also included in this Chapter, are experimental or nonstandard best practices with information about optional innovative bikeways and support facilities that have not been adopted by the Manual of Uniform Traffic Control Devices (MUTCD) or State of California for use in California and do not meet Caltrans Chapter 1000 design requirements. All facility designs are subject to Public Works engineering design review and approval.
Bikeway Facility Classifications
According to Caltrans, the term “bikeway” encompasses all facilities that provide primarily for bicycle travel. Caltrans has defined three types of bikeways in Chapter 1000 of the Highway Design Manual: Class I, Class II, and Class III. For each type of bikeway facility both “Design Requirements” and “Additional Design Recommendations” are provided. “Design Requirements” contain requirements established by Caltrans Chapter 1000 “Bikeway Planning and Design.” “Additional Design Recommendations” are provided as guidelines to assist with design and implementation of facilities and include alternate treatments approved or recommended but not required by Caltrans.
Class I Bikeway Design
Typically called a “bike path” or “shared use path,” a Class I bikeway provides bicycle travel on a paved right-of-way completely separated from any street or highway. The recommended width of a shared use path is dependent upon anticipated usage:
• 8 feet (2.4 m) is the minimum width for Class I facilities • 8 feet (2.4 m) may be used for short neighborhood connector paths (generally less than one mile in length) due to low anticipated volumes of use
• 10 feet (3.0 m) is the recommended minimum width for a typical two-way bicycle path
Bicycle Facility Design Guidelines
• 12 feet (3.6 m) is the preferred minimum width if more than 300 users per peak hour are anticipated, and/or if there is heavy mixed bicycle and pedestrian use a minimum 2 feet (0.6 m) wide graded area must be provided adjacent to the path to provide clearance from trees, poles, walls, guardrails, etc. On facilities with expected heavy use, a yellow centerline stripe is recommended to separate travel in opposite directions.
Class I Bikeway Crossing Designs
At–Grade Intersection
When shared-use paths cross streets, proper design should be developed on the pathway as well as on the roadway to alert bicyclists and motorists of the crossing. Sometimes on larger streets, at midblock pathway crossing locations Bicycle Facility Design Guidelines
an actuated signal is necessary. A signal allows bicyclists a clear crossing of a multi-lane roadway. If a signal is or is not needed, appropriate signage and pavement markings should be installed, including stop signs and bike crossing pavement markings.
Overcrossings
Overcrossings are also an important component of bikeway design. Barriers to bicycling often include freeways, complex interchanges, and rivers. When a route is not available to cross these barriers a bicycle overcrossing is necessary.
Some design considerations for overcrossings include:
• Pathways must be a minimum 6 feet wide, with a preferred width of 8 or 10 feet wide
• Slope of any ramps must comply with ADA Guidelines
• Screens are often a necessary buffer between vehicle traffic and the bicycle overcrossing
Class II Bikeway Design
Often referred to as a “bike lane,” a Class II bikeway provides a striped and stenciled lane for one-way travel on either side of a street or highway. To provide bike lanes along corridors where insufficient space is currently available, extra room can be provided by removing a traffic lane, narrowing traffic lanes, or prohibiting parking. The width of the bike lanes vary according to parking and street conditions. Note that these dimensions are for reference only, may not meet City of Standards and are subject to engineering design review.
• 4 feet (1.2 m) minimum if no gutter exists, measured from edge of pavement
• 5 feet (1.5 m) minimum with normal gutter, measured from curb face; or 3' (0.9 m) measured from the gutter pan seam
5%-100’
5%-300’
5%-400’
5%-400’
Bicycle Facility Design Guidelines
• 5 feet (1.5 m) minimum when parking stalls are marked • 11 feet (3.3 m) minimum for a shared bike/parking lane where parking is permitted but not marked on streets without curbs; or 12 feet (3.6 m) for a shared lane adjacent to a curb face.
Class II Intersection Design-Signalized Intersections
Intersections represent a primary collision point for bicyclists. Small intersections with few lanes are relatively easy to manage. Large, multi-lane intersections are more difficult for bicyclists to travel through than smaller, two-lane intersections.
Challenges and potential solutions for bicyclists’ at large signalized intersections include:
• Signals may not be timed to allow slower-moving bicyclists to travel across the intersection. Solution: Bicycle adaptive signal timing.
Bicycle Facility Design Guidelines
• Loop detectors or video detection that is used to actuate the signal may not be calibrated to detect bicyclists. Solution: Design standard of bike loop use.
• Bicyclists may not know how to actuate the signal using loop detectors, even if it is calibrated. Solution: Use of bike loop detector symbol. • Bicyclists who are traveling straight may have to merge across motor vehicle traffic that is turning right from a right-turn lane. Solution: Bike lane pockets at intersections, between through and right turn lanes.
Design treatments can help bicyclists travel through intersections and alert motorists of bicyclists’ presence. Good intersection design alerts motorist to bicyclists, indicates to motorists and bicyclists where bicyclists may ride, and guides bicyclists through intersections. This treatment provides a design for where a roadway with Class II bike lanes intersects with a road at a signalized intersection.
Bicycle Actuated Signals & Adaptive Signal Timing
Making intersections more “friendly” to bicyclists, involves modifying how they operate. Improved signal timing, calibrating loop detectors to detect bicyclists, and camera detection makes intersections easier for bicyclists to cross intersections. Loop detectors are installed within the roadway to allow the metal of a motor vehicle to trigger a change in the traffic signal. Many standard motor vehicle loop detectors can be calibrated to detect bicycles.
This allows the bicyclist to stay within the lane of travel and avoid maneuvering to the side of the road to trigger a push button. Signals can be configured so that if a bicycle is detected, an extended green time can be provided.
Signal Timing
Cities often apply signal timing techniques to enhance bicycle travel along major streets. For instance, closely-spaced signals (e.g., along one-way streets in City areas) can be timed to match bicyclists’ travel speeds. Signals timed for speeds of 12 to 16 MPH enable most bicyclists to ride comfortably with traffic. Signal timing should also take into account the necessary time needed for a bicyclist to cross a wide intersection. Activation devices can also be used on a roadway approach to prolong the green phase and extend the time needed for a bicyclist to clear the intersection. Standards suggest Bicycle Facility Design Guidelines
intersections utilize markings to indicate the location where a bicyclist is to be positioned in order to actuate a signal. Adjacent signage is also recommended to emphasize the connection between the marking and the signal.
Right-Turn Only Lanes
Right-turn only lanes can present challenges for bicyclists traveling through an intersection. Bicyclists must merge to the left to position themselves in the through travel lane. Jurisdictions will sometimes stripe bike lanes on the rightside of right-turn only lanes, which places the through-cyclist in direct conflict with a right-turning vehicle. The appropriate treatment for right-turn only lanes is to either drop the bike lane entirely approaching the right-turn lane, or to place a bike lane pocket between the right-turn lane and the right-most through lane.
Freeway Ramps
Freeway on- and off-ramp crossings present a potential conflict zone for bicyclists and motorists, as bicycle lanes are typically dropped and bicyclists must merge across travel lanes where vehicles are accelerating or decelerating from freeway speeds. The appropriate bicyclist behavior is to merge left away so as to be positioned in the through lane well before the mouth of the on-ramp, and to remain out away from the curb until past the off-ramp. Implementation of interchange improvements requires coordination with Caltrans regarding placement of signage and striping because these areas are in Caltrans’ right-ofway. Three guidelines for these improvements are:
• The bicycle merge should begin 250 feet in advance of the freeway onBicycle Facility Design Guidelines ramp.
• Appropriate signage and striping should be used to warn bicyclists and motorists of the merge.
• Bicycle improvements to freeway ramps
At-Grade Railroad Crossings
City of has at-grade railroad crossings for existing and proposed bikeways. If bicyclists do not ride at a 90 degree angle over the tracks, bicyclists’ wheels can catch in the tracks and potentially lead to a collision.
Class III Bikeway Design
Generally referred to as a “bike route,” a Class III bikeway provides routes through areas not served by Class I or II facilities or to connect discontinuous segments of a bikeway. Class III facilities can be shared with either motorists on roadways or pedestrians on a sidewalk (not advisable) and is identified only by signing. There are no recommended minimum widths for Class III facilities, but when encouraging bicyclists to travel along selected routes, traffic speed and volume, parking, traffic control devices, and surface quality should be acceptable for bicycle travel.
Although it is not a requirement, a wide outside traffic lane (14 feet) is typically preferable to enable cars to safely pass bicyclists without crossing the centerline. Caltrans Chapter 1000 provides details regarding the design requirements for placement and spacing of bicycle route signage.
On-Street Regulatory & Warning Bike Signs
Signage for on-street bikeways includes standard BIKE LANE and BIKE ROUTE signage, as well as supplemental signage such as SHARE THE ROAD and warning signage for constrained bike lane conditions. Signage should be installed on existing signposts if possible, reducing visual clutter along the path or roadway.
Shared Roadway Bicycle Marking
Recently, Shared Lane Marking stencils have been introduced for use in California as an additional treatment for Class III facilities. The stencil can serve a number of purposes, such as making motorists aware of bicycles potentially in their lane, showing bicyclists the direction of travel, and, with proper placement, reminding bicyclists to bike further from parked cars to prevent “dooring” collisions.
Bicycle Facility Design Guidelines
Bike Route Signage
In addition to wayfinding signs, bike route network signage that uses the California Manual of Uniform Traffic Control Devices (CAMUTCD) standard should be used by local jurisdictions. Route numbering for these signs should be coordinated with neighboring jurisdictions where bikeways cross borders. Most commonly, they show the route number and the corresponding direction.
For bike route signs, CAMUTCD requires a green background and white lettering. The top portion of the sign is customizable for the City or region where it is located.
Multi-Use Path Signs
Local jurisdictions should work together to create a sign system for the multiuse path network. It is an expanding network that could link with many destinations countywide. Signs could show destinations as well as proper traffic control. These signs could be coordinated with other on-street bicycle route signage. This system should encourage use of trails for recreational as well as functional bicycling trip-purposes. Helping bicyclists of all ages reach destinations easily.
Wrong-Way Signs
The local jurisdictions may want to consider additional signage on bikeways with high levels of wrong-way riding. The City of Sunnyvale, places wrong way riding signs on the back of bike lane signs to help prevent bicyclists using bicycle lanes in the wrong direction, riding against traffic.
Parallel Path Warning Signage
When paths are located parallel and adjacent to roadways, vehicles turning into and out of streets and driveways must cross the path. Conflicts between bicyclists and pedestrians and turning motorists are common at these types of intersections. Turning motor vehicles do not expect to see bicyclists or pedestrians coming in the opposite direction of traffic. Starting in the early 1990’s, the City of Denver, Colorado began using experimental warning signage at its parallel paths. The signage is modified from the standard MUTCD railroad warning signage. Experimental signage, similar to the Denver parallel path warning signs, could help alert motorists to the presence of bicyclists and pedestrians on parallel paths.
Bicycle Facility Design Guidelines
Short Term Bicycle Parking
Short term bicycle parking facilities are best used to accommodate visitors, customers, messengers and others expected to depart within two hours. Bicycle racks provide support for the bicycle but do not have locking mechanisms.
Racks are relatively low-cost devices that typically hold between two and eight bicycles, allow bicyclists to securely lock their frames and wheels, are secured to the ground, and should be located in highly visible areas, preferably at the Bicycle Facility Design Guidelines
front of a building. They are usually located at schools, commercial locations, and activity centers such as parks, libraries, retail locations, and civic centers.
Bike Rack Guidelines
Bicycle racks should be installed in accordance to the Association of Pedestrian and Bicycle Professionals Bicycle Parking Guidelines (http://www.apbp.org/? page=Publications) with the following guidelines in mind:
• The rack element (part of the rack that supports the bike) should keep the bike upright, supporting the frame in two places and allowing one or both wheels to be secured.
•
• Install racks so there is enough room between adjacent parked bicycles. If it becomes too difficult for a bicyclist to easily lock their bicycle, they may park elsewhere. A row of inverted “U” racks should be installed with 15 inches minimum between racks.
• Empty racks should not pose a tripping hazard for visually impaired pedestrians. Position racks out of the walkway’s clear zone. When possible, racks should be in a covered area protected from the elements.
Bicycle Facility Design Guidelines
• Long-term parking should always be protected.
• Generally, ‘U’ type racks bolted into the sidewalk are preferred and should be located intermittently or in front of key destinations. • Bicycle racks should be installed to meet ADA standards and not block pedestrian through traffic.
The City may want to consider / encourage custom racks that can serve not only as Bicycle racks, but also public artwork.
Long Term Bicycle Parking
Long-term bicycle parking facilities accommodate employees, students, residents, commuters, and others that typically expect to park for more than two hours. These parking facilities should be provided in a secure, weather protected manner and location.
For long-term parking, the City may want to consider / encourage bicycle lockers. Bicyclists are usually more comfortable storing bicycles in lockers for long periods because they offer increased security and protection from natural elements. Although they may be more expensive to install, they can make the difference for commuters deciding whether or not to bicycle. The park and ride lot located on the east side of the Horseshoe Bar Road interchange and the park and ride / bus transfer lot at the rail station are excellent opportunities to locate long term bike parking facilities.
Lockers can be controlled with traditional key systems or through more elaborate subscription systems. Subscription locker programs, like e-lockers, or park-by-phone systems allow even more flexibility within locker use. Instead of restricting access for each patron to a single locker, subscribers can gain access to all lockers within a system, controlled by magnetic access cards, or caller ID.
These programs typically have fewer administrative costs because they simplify or eliminate key management and locker assignment.
Pavement Marking Guidelines
The following exhibits are from the California MUTCD and depict typical striping, signage and marking for all bikeway facilities.
Bicycle Facility Design Guidelines
CLASS II BIKEWAY MARKING DIMENSIONS
Bicycle Facility Design Guidelines
CLASS II BIKEWAY MARKINGS LOCATIONS
Bicycle Facility Design Guidelines
CLASS III BIKEWAY SIGNAGE LOCATIONS
Source:California MUTCD FIGURE 9B−6
Bicycle Facility Design Guidelines