CITY COUNCIL STAFF REPORT
Meeting Date: March 18, 2024
TO: THE HONORABLE MAYOR AND CITY COUNCILMEMBERS
SUBJECT: ADOPT RESOLUTION NO.___-24 ADOPTING THE CITY OF
PLEASANT HILL BICYCLE AND PEDESTRIAN MASTER PLAN
SYNOPSIS
The City of Pleasant Hill’s Bicycle and Pedestrian Master Plan (BPMP), which compliments the City’s 2040 General Plan, will serve as the City’s policy and planning document for the build-out of projects and programs that focus on expanding and promoting active transportation. The purpose of this item is for the City Council to review and consider adopting the BPMP.
DISCUSSION
Background
The Pleasant Hill Bicycle and Pedestrian Master Plan (BPMP) was last updated in 2012. The City initiated an update of the BPMP in 2018 and selected Alta Planning + Design, a transportation consultant, to assist staff in updating the plan. The initial update of the BPMP was completed in 2019, but final plan approval was deferred to allow for the completion of the update of the General Plan (General Plan 2040).
In 2022, the City initiated a peripheral update of the 2019 Draft BPMP to take advantage of the newly available 2020 Census and collision data. The plan also received additional content updates focused on expanding the connectivity of bicycle facilities along neighborhood streets.
Additionally, during this period, state law changed relative to CEQA review. The legislation, Senate Bill 922, which became effective January 1, 2023, expedited bike, pedestrian, light rail, and rapid bus projects by exempting these environmentally sustainable projects from CEQA review.
The Traffic Safety Commission, which served as the primary advisory board for the BPMP development, recommended the BPMP for approval by City Council at its December 6, 2022 Traffic Safety Commission meeting.
In January 2023, the BPMP was brought before the Planning Commission for review and recommendation to City Council. At that time, the Planning Commission found that the BPMP was not consistent with the City’s General Plan and voted to continue the item to a future date. In general, feedback from Commissioners and public commenters cited the need to make the BPMP more aspirational, especially concerning the proposed bicycle network; to include more robust bicycle facilities on key corridors; to enhance safe routes to school elements; and to conduct additional public outreach.
In response to the Planning Commission meeting feedback, the City conducted a Town Hall meeting in April 2023 to provide an opportunity for further community discussion. The BPMP was then updated to address comments received at the meeting, and to be consistent with the City’s 2040 General Plan, which was adopted in May 2023. Ultimately, at its January 23, 2024 meeting, the Planning Commission unanimously adopted Resolution No. 2-24 finding the BPMP consistent with the 2040 General Plan.
Analysis
Overview of the Bicycle and Pedestrian Master Plan
The Pleasant Hill Bicycle and Pedestrian Master Plan assesses the City’s existing bicycle and pedestrian infrastructure and makes recommendations for future facilities and programs.
General Plan Consistency
At a policy level, the BPMP provides recommendations, goals, and policies that are consistent with the 2040 General Plan’s Transportation and Circulation Element specifically. More broadly the BPMP is consistent with General Plan themes such as sustainability, mobility, and public safety, including goals and policies from the Economics, Land Use, and Environment Elements.
In both the General Plan and proposed BPMP, these goals include policies that support the recommended projects and programs in the BPMP. Specific policy and target programs in the BPMP focus on expanding staff’s ability to design the appropriate types of bicycle and pedestrian facilities for the community using a data-driven processes. The BPMP includes buildout of a well-connected network of bikeways that will provide comfort and safety to bicyclists of all ages and abilities, meeting the needs of those who are interested in bicycling but are concerned about the adequacy of existing facilities.
The BPMP recommends the implementation of a new collision database to track trends that may require proactive change, as well as identification of positive design treatments that can be expanded throughout the City. The plan also recommends expanding bicycle and pedestrian facilities that support the City’s most vulnerable users, school-aged children, through expanded Safe Routes to School programs. More detail of the proposed BPMP consistency with the General Plan is provided in the Planning Commission Resolution (Attachment C).
Existing Conditions
A key development task of the BPMP includes documenting existing infrastructure within the City, including types of bicycle facilities, sidewalks, bike parking, transit routes, and supporting infrastructure (i.e., pedestrian-activated flashing beacons, traffic signals, high-visibility crosswalk roadway markings and signage, etc.). The existing conditions analysis also includes a collision history analysis, updated to 2020. Key findings from the collision history analysis show, on average, two bicycle-related collisions per year focused along Contra Costa Boulevard and 10 pedestrian-related collisions per year at various locations around the City.
With existing infrastructure both mapped and documented, the City and Alta Planning + Design staff identified gaps between facilities and future projects to improve mobility and access across the City with a focus on connecting neighborhoods, schools, business districts, and public facilities. This assessment is included in the Needs Analysis section of the BPMP.
Infrastructure Recommendations
The BPMP recommends 39 miles of new bikeways and multi-use pathways and approximately
10.7 miles of new sidewalks. Bicycle facilities are classified into four distinct categories:
Class Facility Type Description
I Multi-Use Paths Grade-separated facilities such as trails. These facilities are considered the most comfortable for
bicyclists and pedestrians with limited vehicle cross
traffic.
II Bike Lanes Designed space on the roadway adjacent to vehicle traffic. IIB facilities include buffered bike lanes that provide a buffer zone adjacent to vehicle traffic.
III Bike Routes Shared vehicle lanes between bicyclists and motorists. Bike Routes are typically designated
with Share the Road “Sharrows” markings.
IV Separated bikeways Similar to Class IIB Buffered Bike Lanes, but a vertical element is added within the buffer zone to
provide an additional layer of protection between
bicyclists and motorists. Can provide the same level
of comfort as Multi-Use Paths.
Within the BPMP, Figure 5-1 – Existing and Recommended Bikeway Network identifies the recommended bike network for Pleasant Hill, and the figure serves as the primary blueprint for the build-out of bicycle facilities in the City. Using a combination of low volume, low speed neighborhood shared streets, expanding the City’s network of multi-use paths, and implementation of new separated bikeways will create a well-connected, safe, and comfortable riding experience for people of all ages and abilities.
Similarly, Figure 6-1 Recommended Pedestrian Improvements of the BPMP includes projects at key gaps in the pedestrian network including additional sidewalks, multi-use trails, and roadway crossing enhancements. Akin to the recommended bikeway improvements, pedestrian improvements are aimed at providing a safe, comfortable, and accessible walking experience for all, connecting neighborhoods, and improving livability.
Program Recommendations
The BPMP identifies programmatic projects to help educate, encourage, and incentivize bicycle and pedestrian travel modes in Pleasant Hill. Programs include Safe Routes to School, bicycle education, bike-to-work day, public outreach materials, and ongoing data collection and surveys.
Development of a Safe Routes to School program, in partnership with the Contra Costa Transportation Authority (CCTA) – Street Smart Diablo program, would allow for the development of “Safe Routes to School – Walk and Roll Maps” and provide rewards to students who bike to school. The BPMP includes an example of a school-specific Safe Routes to School Implementation plan for Gregory Gardens Elementary School. Recommendations for ongoing evaluation and community outreach are also included.
BPMP Updates
The BPMP should receive an update every 10 years to adjust the network maps to provide consistency with land use changes in the City. The proposed BPMP is a major update from the prior plan, last revised in 2012.
The City’s Capital Improvement Program will be updated as specific projects identified in the BPMP are carried forward into design and implementation.
FISCAL IMPACT
The range of costs for all infrastructure-related improvements ranges between $17.8M to $46.3M, depending on right-of-way, design treatments, and individual project funding constraints. New programs are estimated to cost up to $300,000 per year. A comprehensive list of projects (by project type) is included within the BPMP. Historically, Pleasant Hill has relied on grant programs, partnerships with the Annual Street Resurfacing program, and Measure K funding to implement active transportation improvements. Additionally, private development offers opportunity for implementation, both directly through frontage improvements and indirectly through transportation fees. The BPMP will increase the City’s effectiveness in taking advantage of these opportunities.
This BPMP will allow the City to apply for future grant-fund opportunities, as well as guide other investments in the City’s roadway network. Having an approved bicycle and pedestrian master plan that identifies projects will help the City qualify for grant funding that promotes the build-out of a continuous active transportation network within the City.
PUBLIC CONTACT
Notice of this public hearing was published in the Contra Costa Times on February 20, 2024, and March 4, 2024. In addition, notification was provided on the City’s electronic sign and on AFrames at the Library. Public contact was also made through posting of the City Council agenda on the City’s official notice bulletin board, at the Pleasant Hill Senior Center, and at the Pleasant Hill Police Department. The agenda and staff report are posted on the City’s web page.
RECOMMENDED CITY COUNCIL ACTION
Adopt the proposed resolution to approve the Bicycle Pedestrian Master Plan.
ALTERNATIVES TO RECOMMENDED ACTION
• Adopt the Bicycle and Pedestrian Master Plan with modifications; • Do not adopt the Bicycle and Pedestrian Master Plan;
• Continue the matter to a later City Council date with direction provided to City Staff.
ATTACHMENTS
Attachment A Proposed Resolution
Attachment B Bicycle and Pedestrian Master Plan
Attachment C Planning Commission Resolution No. 2-24
Attachment D Public Hearing Notice
Attachment E Public Comments
Prepared by: Ryan McClain, Transportation Manager
Reviewed by: Ann James, Interim Public Works Director
Approved by: Ethan Bindernagel, City Manager