Title
Recommendation to Adopt Final Draft Active Transportation Plan (Action Item)
Body
EXECUTIVE SUMMARY
The Final Draft Alameda Active Transportation Plan provides a roadmap for making walking and biking safe and desirable every-day transportation options in Alameda. It is a plan for people of all ages and abilities - including children, seniors and people with disabilities - that will contribute towards addressing the City’s safety, greenhouse gas reduction, and transportation mode shift goals; and enhancing the health and livability of the Alameda community. The Active Transportation Plan replaces the City’s 2009 Pedestrian Plan and the 2010 Bicycle Master Plan.
After an initial extensive community engagement period in late 2019 to solicit the community’s concerns and ideas, in mid-2020, draft recommendations for a vision statement, goals, bikeway network, pedestrian strategy and programs were presented to the community. This October 2022, a complete draft Plan was released for public review. Input on the draft Plan was collected at 14 public events and meetings, including 5 Commission and Board meetings; 7 presentations/tabling for local organizations; and via an online survey. The Final Draft Plan incorporates many of the suggestions made by the diverse array of reviewers.
Staff is recommending that the Transportation Commission make a recommendation to the City Council to adopt the Active Transportation Plan and its appendices (Exhibits 1-8), and direct staff to make the final changes included in the “Additional Changes Recommended by Staff” section further below.
The Plan’s comprehensive webpage includes all of the previously released draft recommendations and reports, and the October draft Plan, plus the previous community engagement events: www.ActiveAlameda.org <http://www.ActiveAlameda.org>.
BACKGROUND
Over the course of the past three-plus years the City and Alameda community have been working on development of the Active Transportation Plan. The planning process began in fall 2019 with an intensive and inclusive public engagement period to learn what the community saw as the assets and needs of the existing biking and walking environments. In summer 2020, draft recommendations for bicycle and pedestrian projects, programs, policies, and priorities were presented to the community virtually and input was solicited. After a pause, in early 2022, staff and the consultant team incorporated the community feedback on the recommendations, developed and applied the prioritization methodology to the capital projects, and assembled a Draft Plan for public review, which was released and reviewed extensively by the community in October 2022, including by the Transportation Commission on October 19th.
In developing this Plan, the City held or attended a total of 50 public events and meetings, and local organization meetings. The Plan was also informed by the work of a Community Advisory Group, which included 11 community members representing renters, older adults, high school students, transit riders, people with disabilities, parents of school-aged children, walking and bicycling advocates, and members of the Latinx and Asian-American communities.
Additional highlights of the comprehensive community engagement include:
• Over 2,100 public comments on existing walking and biking conditions via interactive online maps;
• Over 1,000 responses to 9 online surveys;
• Over 550 public comments on the recommended bicycle network, via an interactive online map;
• 97,000 engagement emails sent (in phases 2 & 3);
• 10 workshops and events with traditionally underrepresented groups, including people of color, high school students, lower-income residents, seniors, and un-housed populations;
• 8 workshops with business associations;
• 10 virtual open houses and listening sessions;
• 6 Transportation Commission public workshops;
• 2 workshops with the Commission on Persons with Disabilities;
• 2 workshops with the Recreation and Parks Commission;
• 3 workshops with the Social Services and Human Relations Board; and
• 1 presentation to the Planning Board.
The extensive community engagement is described in detail in Appendix B of the Plan and information about the public input process is also available at www.ActiveAlameda.org <http://www.ActiveAlameda.org>.
DISCUSSION
The Active Transportation Plan describes the work that is needed in the long-term and also over the next eight years to make Alameda a city where people of all ages, abilities, income levels, and backgrounds are safer and more comfortable walking, biking, or rolling as a preferred mode of transportation.
The Plan is designed to help implement the safety, greenhouse gas reduction and transportation goals in existing City plans, including the 2021 General Plan, the City’s Climate Action and Resiliency Plan, and the City’s Vision Zero Action Plan.
The availability of the October Draft Plan for public review and comment was widely publicized using 15 City and partner organization mailing lists to deliver over 70,000 emails. Six newspaper articles were published about the Draft Plan, and the Plan was the top “call to action” item on the City’s web page for over two weeks.
The City received hundreds of comments on the Draft Plan via an online survey with over 325 responses, 14 public events and meetings, 7 presentations or tabling for local organizations, and additional emails, letters and phone comments. The Draft Plan was also shared with other relevant public agency staff, including transit agencies, who provided feedback.
Staff reviewed and considered all of the comments received (which will be posted by Thursday, November 10 on the Plan web page: www.ActiveAlaemda.org <http://www.ActiveAlaemda.org>). The key substantive changes made in response to comments are listed immediately below. Some changes were unable to be made in time to be incorporated into this Final Draft Plan. These additional changes, listed further below, are recommended by staff and will be made to the Plan if approved by City Council.
Changes reflected in November Final Draft Plan
Existing Conditions (Chapter 3)
• Equity: Some commented that equity was not adequately emphasized in the Plan. In response, a new section describing Equity Priority Areas and how they were used in the Plan was added (see page 22).
• Trip data corrected: Staff corrected an error in the trip data on page 14, and in other places where this mode share data was referenced.
Pedestrian Design Strategy (Chapter 4)
• Strategy: A number of commenters felt that the pedestrian design strategy was not clear, including when the improvements would be made. The text was modified in an attempt to make the strategy more clear and to show that it will be used not just for stand-alone projects, but when regular maintenance is performed (pages 30-31).
• Sidewalk maintenance and gaps: Many raised the issue of the importance of maintaining obstruction free, ADA-compliant sidewalks and curb ramps, and eliminating sidewalk gaps. The existing maintenance section was strengthened (page 31).
Bikeway Network (Chapter 5)
• Bikeway Vision Network changes (Figures 6 and 7):
o Challenger Dr (Marina Village Parkway to Atlantic Ave): Upgraded from proposed buffered bike lanes to proposed separated bike lanes.
o Marina Village Parkway (Mariner Square Drive to Constitution Way): Upgraded from proposed buffered bike lanes to proposed separated bike lanes.
o These two roadways in Marina Village were upgraded to low-stress facilities since they will connect the upcoming north-south trail connector into Jean Sweeney Open Space Park and the Cross Alameda Trail with destinations at the Marina Village shopping and research centers.
• Neighborhood Greenways: The description was expanded slightly and the goals for these streets were clarified. Additionally, a new auto volume target was added - for 50 or fewer vehicles in the peak direction at the peak hour - a target which is recommended by NACTO (National Association of City Transportation Officials). See page 43.
o Map added: The Low Stress Bikeway Vision Network map was added to the Plan (Figure 7). It shows just the three bikeway types from the full Vision Network that are low-stress. The map was posted on the Plan webpage during the public comment period but had not yet been incorporated into the Plan.
Trails Network and Waterfront Crossings (Chapter 6)
• Bay Trail route map (Figure 9): At the request of the Metropolitan Transportation Commission (MTC) Bay Trail staff, this map was modified to only show one route, not both a long and short term one, in two short segments near Central Avenue and Fernside. The possibility of future routings closer to the water is now described in text, on page 48.
Programs (Chapter 7)
• Programs modified: Many comments were received on the list of programs. As a result, the table of programs was modified significantly. Duplicative programs were consolidated. A program made obsolete by new state legislation was removed. Several missing programs, including for bike safety education for adults and teens, were added. Some programs were modified to add suggested enhancements. Ones that people repeatedly misunderstood were clarified. Finally, the list of programs was re-ordered, to put like programs closer together in the table, which means that all of them have new numbers.
2030 Infrastructure Plan (Chapter 8)
• 2030 Low-Stress Backbone Network: This description of this map (Figure 10) was expanded, to address some confusion about what it is (see page 59).
• Projects List: Some people were confused about the scope of the proposed projects in the 2030 Infrastructure Plan (Table 10), and many expressed frustration or confusion regarding the 2030 timeline for completion. In response, many of the project descriptions were expanded and clarified, and more specific target years for completion were added. One additional project was added - the estuary water shuttle - since it is already in the planning phase. Although other new projects were requested, they were not added since staff does not have the capacity to accomplish more in this eight year timeframe. Finally, the projects were re-ordered and re-numbered, to roughly reflect the chronological order of completion, and the total number of projects was corrected - there are 32 projects in total.
• Slow Streets: For clarity, the section on the “Future of Slow Streets” was moved from Chapter 5 to Chapter 8 (see page 66).
• Funding and Resources: In response to comments, this section was updated to remove the statement that no new staffing was needed to accomplish the 2030 projects and programs, and it was clarified that this will be evaluated during the annual budgeting processes (pages 66-67).
• Performance Measures: Several requests were made to expand upon the performance measures and to set concrete goals. In response, they were significantly revised and expanded, and now include baseline and target numbers, plus information on the available frequency of the data sources (see page 67 and Table 11).
Appendices
• Engagement summary: Appendix B now includes a summary of the October public engagement on the Public Review Draft Plan.
Minor edits
• Several map edits were made to simplify the legends and, on several maps, explanations were added below the map name to clarify the purpose of the map. The Appendices were re-lettered to match the order in which they are referenced in the Plan. Some photos were swapped out for new photos.
Overall
• Pedestrian focus: Some commenters felt that the Plan was overly focused on bicycling. This was not the intent, and in response, edits were made throughout the Plan to elevate the pedestrian content and proposals.
• Trail maintenance: The strong need for shared use trail maintenance, particularly on Bay Farm Island, was stated by many. While programs and projects were already included to address this need, this content was strengthened, mainly in Chapters 6 and 8.
Additional Changes Recommended by Staff
The following additional changes are recommended by staff, and are not yet in the November Draft Plan.
Pedestrian Design Strategy (Chapter 4)
• Align Pedestrian Street Types and General Plan Street Classifications: Update the Pedestrian Street Types map (Figure 5) Business Main Street street segments to align with the proposed Main Street street segments in the draft General Plan Appendix Street Classifications (Figure 1). Changes were recently made to the Street Classifications Figure 1 that were not captured in the latest Figure 5. Since these two main street types are very similar, they should be aligned.
Bikeway Network (Chapter 5)
§ Bikeway Vision Network changes (Figures 6 and 7)
o Aughinbaugh: Upgrade Aughinbaugh Way (Mecartney Rd to Seaview Parkway) from existing buffered bike lanes to proposed separated bike lanes, to expand connectivity of low-stress network and improve access to schools and ferry terminal. There is not a parallel shared-use trail in this location, and there is adequate width to fairly easily add separated bike lanes.
o Robert Davey Jr Dr: Upgrade Robert Davey Jr Dr (Aughinbaugh Way to Island Dr) from existing and proposed buffered bike lanes to proposed separated bike lanes, to expand connectivity of low-stress network and improve access to schools. There is adequate width to fairly easily add separated bike lanes.
o Mecartney Rd: Upgrade Mecartney Rd (Aughinbaugh Way to Adelphian Way) from existing standard bike lanes to proposed separated bike lanes, to expand connectivity of low-stress network and improve access to ferry terminal. There is adequate width to fairly easily add separated bike lanes, and this facility would connect to existing shared-use trail to the east.
o Adelphian Way and Harbor Bay Parkway: Remove proposed Neighborhood Greenway on Adelphian Way and Harbor Bay Parkway between Mecartney and Bay Edge Rd, since there is parallel shared-use trail along the waterfront, will avoid routing bicyclists through the Ferry Terminal parking lot and along a transit route, and it is classified as a Neighborhood Connector in the General Plan Street Classification Appendix, which is not compatible with a Neighborhood Greenway.
o Mckay Ave: Upgrade from existing bike route to a proposed low-stress facility (type TBD), to connect planned Central Ave separated bike lanes to the Bay Trail and East Bay Regional Park District’s planned expansion of Crown Memorial State Beach.
o Hibbard/Eagle: Remove proposed Neighborhood Greenway on Hibbard St (Clement Ave to Eagle Ave) and Eagle Ave (Hibbard St to Grand St). This was proposed as interim Cross Alameda Trail routing when the construction timing for the new Clement Ave extension (Hibbard to Grand) at the former Pennzoil property was unknown. It is now known that the Clement extension should take place within a few years, so this interim routing is not needed.
Chapter 8
§ Cost estimates: Staff will develop and add a total cost estimate for the 17 City-led projects in the 2030 Infrastructure Plan (Table 10), and for the 2030 Low Stress Backbone Network. To be added to Page 59.
§ Performance Measures: Staff will research, develop and add numbers for the five numbers listed as “[coming]” in Figure 11.
Figures (maps)
• Figure 1: Existing Pedestrian and Trail Facilities: Map colors will be edited to distinguish between “private or public streets” only and those streets with sidewalks. Both are now grey lines. Also, text will be added to map to clarify that not all signals and RRFBs are on the map, since it was last revised in 2019.
• Figure 3: Pedestrian High Injury Corridors: Colors of the three tiers will be changed to be more distinguishable.
• Figures 3 and 4: Pedestrian and Bicycle High Injury Corridors: Explanation of tier levels will be added to the maps, to clarify what “tiers” mean.
• Figure 9: Bay Trail route map: Make improvements to the legend, indicating the pedestrian facilities (sidewalks and paths) are part of the Bay Trail route. Also, add text below the map title explaining purpose of map.
• Appendix G: Active Transportation Project Prioritization: Colors on Prioritization Results maps will be adjusted so that the High scoring segments stand out more than the Low scoring ones.
FINANCIAL IMPACT
There is no financial impact in the current fiscal year for adoption of the Active Transportation Plan. The current adopted Capital Budget (FY 2021-2023) includes sufficient unencumbered funds to implement the Plan. However, the Plan will require financial contributions from the City in the future, which will be subject to future City Council approval, via the regular City budgeting processes.
MUNICIPAL CODE/POLICY DOCUMENT CROSS REFERENCE
The Active Transportation Plan will replace the City’s existing Pedestrian Plan (2009) and Bicycle Master Plan (2010), and is recommended as a necessary plan in the General Plan Mobility Element. The Plan also helps implement the City’s Climate Action Plan and Vision Zero Action Plan.
ENVIRONMENTAL REVIEW
Implementing the Active Transportation Plan will have a positive effect on the environment and climate change.
On November 30, 2021, the City Council approved the 2021 General Plan Update, and the City Council approved Resolution No. 15841 certifying a Final Environmental Impact Report for the Alameda 2040 General Plan Update (State Clearinghouse No. 2021030563) in compliance with the California Environmental Quality Act, and adopted written findings, a Statement of Overriding Considerations, and a Mitigation Monitoring and Reporting Program.
The General Plan Update approved by the City Council included, and the General Plan EIR evaluated, the environmental impacts of the Mobility Element update and implementing actions such as the adoption of the Active Transportation Plan. The EIR analysis evaluated the environmental impacts of Policy ME-14 which reads as follows:
Active Transportation. Reduce traffic, improve public health, increase transportation equity, reduce greenhouse gas emissions, and air and noise pollution, increase access to transit, enhance quality of life, and improve the efficiency of the transportation system by making Alameda a city where people of all ages and abilities can safely, conveniently, and comfortably walk, bike, and roll to their destinations.
Actions:
a. Connectivity and Comfort. Develop a well-connected, low-stress, and uncluttered network of pedestrian and bicycle facilities that are comfortable and well-designed for people of all ages and abilities. Seamlessly link the network with Alameda’s key destinations such as schools, designated commercial corridors, grocery stores, parks and transit stops.
b. Maintenance. Regularly maintain the active transportation network for safety and comfort, and to ensure current design standards are being met.
c. Community Awareness and Education. Foster a strong culture of walking and bicycling through public outreach efforts such as community-wide campaigns, community-implemented street art and place-making (such as painted bulb-outs and intersections), and ongoing education in collaboration with community organizations and neighborhood groups.
d. Equity. Ensure that comfortable bicycle and pedestrian facilities and programs are implemented equitably throughout the city.
e. Safety. Increase the safety of all people bicycling and walking by improving the design of streets and active transportation facilities, educating the public, and enforcing traffic laws.
f. Design for Context. Develop a pedestrian-specific street typology to apply to all city streets, based on street function and characteristics, and match recommended design treatments to each typology.
g. Supportive, Barrier-Free-Infrastructure. Ensure that bicycle and pedestrian infrastructure is barrier-free, well-signed and well-supplied with short and long-term bicycle parking.
h. Low-stress Bikeways. Prioritize low-stress biking infrastructure such as separated bicycle lanes, bicycle boulevards (Slow Streets) and bike trails, which is comfortable for the majority of the community. Build these facilities with enough width to comfortably and safely support all people and devices into the future, including cargo bikes, electric bikes, and scooters, all operating at different speeds. Provide separated bicycle lanes instead of unprotected, standard bicycle lanes, unless not feasible, and optimize the experience of bicyclists on bike boulevards by minimizing stop signs along these routes by opting for mini-roundabouts or similar treatments that allow bicyclists to travel unimpeded while slowing vehicle speeds.
i. Separate Pathways. Where there is adequate space and existing or anticipated future demand, build separate facilities for people walking and bicycling, given their different speeds.
j. Safer Intersections. Use hardscape treatments and traffic signals to separate people walking and bicycling from motorists at busy and larger intersections.
Pursuant to CEQA Guidelines sections 15162 and 15163, none of the circumstances necessitating further CEQA review or preparation of a new EIR are present with respect to the General Plan EIR and the Active Transportation Plan adoption. Adoption of the Active Transportation Plan does not require major revisions to the General Plan EIR due to new significant impacts or due to a substantial increase in the severity of the significant environmental effects. There have been no substantial changes with respect to the circumstances under which the project would be undertaken that would require major revisions of the General Plan EIR due to new or substantially increased significant environmental effects. Further, there has been no discovery of new information of substantial importance that would trigger or require major revisions to the General Plan EIR due to new or substantially increased significant environmental effects. No further environmental review is required.
CLIMATE IMPACT
Implementing the Active Transportation Plan will reduce greenhouse gas emissions in Alameda. Currently vehicle trips in Alameda generate approximately 70% of the greenhouse gas emissions in the City of Alameda. This is a reflection of the fact that 70% of all trips in Alameda are taken by automobile, despite the fact that over 60% of all trips are only 3 miles or less in length. Currently walking and bicycling comprise only 25% of all trips. One of the goals of the Active Transportation Plan is to increase the percentage of bicycle and pedestrian trips and reduce the percentage of automobile trips.
RECOMMENDATION
Recommendation to Council to adopt the Final Draft Active Transportation Plan.
Respectfully submitted,
Rochelle Wheeler, Senior Transportation Coordinator
Andrew Thomas, Planning, Building and Transportation Director
Exhibits:
1. Final Draft Active Transportation Plan
2. Appendix A. Plans and Policies Review
3. Appendix B. Summaries of Community Survey and Public Engagement
4. Appendix C. Existing Conditions Report
5. Appendix D. Level of Traffic Stress and Trip Potential Analysis
6. Appendix E. Detailed Crash Analysis Report
7. Appendix F. Pedestrian and Bicycle Facility Types
8. Appendix G. Active Transportation Project Prioritization