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Conference on Performance Measures for Transportation and Livable Communities

SEPTEMBER 7-8, 2011 • AUSTIN, TEXAS

BREAKOUT SESSION 1:
Complete Streets Performance Measures

Click on the icon to view a PDF of the slide presentation.

Presiding

FRED DOCK, City of Pasadena, California

	Principles for Measuring and Achieving Livability in Planning and Design Decisions BRUCE APPLEYARD, University of Utah
	Washington State Main Street Highways Initiat PAULA REEVES, Washington State Department of Transportation
	Performance Measurement of Contact Sensitive Solutions in Urban Thoroughfare Design BEVERLY STOREY, Texas Transportation Institute

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Principles for Measuring and Achieving Livability in Planning and Design Decisions

BRUCE APPLEYARD, University of Utah

Slides [PDF , 6.7M]

Bruce Appleyard discussed the Livable Streets Primer, which was written by his father, Donald Appleyard.  He described the key concepts from the book and how it relates to the current focus on livable communities.  Bruce noted that he is updating the book.  Bruce covered the following points in his presentation.

• The Livable Street Primer was first published in 1981.  It examined the extent of an individual’s home territory based on different levels of traffic.  People tend to have more extensive views of their home territory on streets with light traffic and more narrow limited views on streets with heavy traffic.  It also appears that as traffic increases, neighborhood pride and property values decrease.
• The book describes the ecology of the street.  This ecology includes a street at peace, in conflict, and in retreat.  The adaptive responses to different situations are presented.  University of California Professor Randolph Hester has said that “It was perhaps the most influential urban design books of its time.  Prior to Livable Streets, streets were looked upon as ‘sewers for cars’ and traffic was not yet seen to have broader impacts on our psychology, our socializing, or our sense of comfort around streets.  After Livable Streets, streets were appreciated more fully: as places where people lived; as potential places to build important social ties; and as places for children to play.”
• A number of issues are being considered in the current discussion of livability.  There are ongoing discussions on the definition of livability, including defining livability on a community-by-community basis.  Other possible issues relate to addressing potentially competing objectives, meshing economic competitiveness and livability, supporting existing communities, and providing options to automobile-dominated development patterns.
• Livable streets established a framework to evaluate the impacts of traffic on people and communities.  It introduced the phrase “ecology of the street.” It helped change the focus from a driver-pedestrian conflict to a driver versus resident conflict.  It also articulated the roles people play and the unequal distribution of power in different communities.  It articulated many of the concepts that are now part of CSS.  It pioneered the complete streets hierarchy of walking, bicycling, transit, and driving.
• The Livable Streets Primer notes that people adapt to poor conditions.  To achieve livability, it may be necessary to uncover if community ties have been undermined, or even displaced.  These social connections can then be re-established.  Researching and observing people’s revealed behavior, and uncovering aspects of people’s lives that could be better may be needed to achieve livability.

Washington State Main Street Highways Initiative

PAULA REEVES, Washington State Department of Transportation

Slides [PDF , 2.4M]

Paula Reeves discussed the Washington State Department of Transportation (WSDOT) state highways as main streets initiative.  She described the issues associated with state highways that also serve as main streets in small and rural communities, elements of the research study examining these concerns, and the study findings and outcomes.  Paula covered the following topics in her presentation.

• The costs associated with typical city infrastructure, including streets, are high.  City streets are more than pavement.  In 2008, the actual bid specifications for a typical complete street in Washington State were $15.7 million.  These costs included right-of-ways, easements, sidewalks, planting, parking, driving lanes, and lighting.  They also include gas, electrical telecommunications, storm drainage, water, sewer, and utility relocations.  Ongoing maintenance, preservation, and operating costs are extra.
• Cities in Washington have maintenance responsibilities on managed access highways.  City responsibilities consistent with state laws focus on operations, including street illumination; cleaning streets, catch basins, and snow plowing; maintaining existing stormwater facilities; and traffic and parking enforcement.  In addition, cities over 22,500 in population are responsible for slope stability and traffic control signs.  WSDOT is responsible for the structural integrity, including the roadway surface and shoulders, traffic control signals, slope stability, snow plowing authority when necessary, and route markers and directional signs in communities under 22,500 in population.  In communities over 22,500 in population, WSDOT is responsible for the roadway surface and shoulders, snow plowing authority when necessary, and route markers and directional signs.  State highway improvements are typically a partnership between cities and the state.
• The State Highways as Main Streets:  A Study of Community Design and Visioning focused on three main issues.  The first issue was that state highways in Washington often serve as main streets in smaller communities, providing local access as well as regional mobility.  The second issue was that the design of these highways affects community livability and safety.  These roads have some of the highest rates of pedestrian and traffic collisions in the state.  Increased costs and delays due to late stage design changes in projects on these highways represents the third issue.
• The study was undertaken to address these issues and a number of needs, including helping local agencies improve funding opportunities.  The study also explored new methods for collaboration and problem solving when state highways serve as local main streets.  It also determined successful approaches to meet the federal requirements for visioning set forth in SAFETEA-LU, and translated context sensitive design (CSD) guidance into practice.  Finally, the study supported staff and organizational development by connecting the architecture profession and the transportation engineering profession.
• There were a number of anticipated outcomes from the study.  A first outcome was to develop more cost effective transportation projects by ensuring fewer scope and schedule changes and revitalize versus mitigate transportation impacts to communities.  A second anticipated outcome was to identify partnership opportunities and resources, including transportation, historic preservation, environmental, economic development, and utilities.  A final anticipated outcome was to ensure a measurable link between goals and transportation investments, such as outcomes versus throughput or volume-to-capacity ratio.  Safety was also considered as a measurable link between goals and investments.
• The research involved both a system analysis and the development of case studies.  The research was conducted by the Storefront Studio Program in the Department of Architecture, College of Built Environments at the University of Washington in Seattle.
• The first activity was to categorize a main street highway.  The first step in this process was to screen a highway by specific variables.  Examples of the screening variables included state route within the city limits, highway of statewide significance, National Highway System, state access control classification, and federal functional classification.  Other screening variables were design speed, posted speed, year of incorporation, freight classification, and collision history.
• The second activity was to define main street highways.  Variables used in this process included the proportion of commercial buildings that are visible, the proportion of street frontage with dead space, the proportion of street frontage with parked cars, and the proportion of street frontage with tree canopies.  Other variables were the number of travel lanes, average travel lane width, average shoulder width, average median width, average sidewalk width, and total curb to curb width.  Still other variables focused on sidewalks, bicycle lanes, and building characteristics.
• A number of main street highways were identified throughout the state using this methodology.  The community design case studies included the communities of Rosyln, Morton, and Goldendale.  Other cities also participated.  The case studies utilized storefront studios, which included public open houses, exhibits, and information exchanges.  Before-and-after streetscapes were developed using archival research, photographic documentation, and digital collages.
• The study findings indicated that scope changes are more common on main street highways than on other projects in the state.  Scope changes occurred on 48 percent of all main street highway projects compared to 38 percent on projects in other parts of the state system.  A retrospective review indicates that on 40 projects, or 20 percent of WSDOT’s scope, schedule, and budget changes could have directly benefited from additional community design.  The average estimated saving per project from additional community design was estimated at over $9 million, or 30 percent of the project costs.
• The study research was implemented through the New Complete Streets/Main Street Highways Program approved by the 2010 Washington Legislature as HB 1071.  The program focuses on retrofitting roadways that provide both local access and regional mobility.
• In addition to serving as the foundation for Washington’s 2011 Complete Streets Law, the study was highlighted in the January/February 2010 issue of CityVision magazine, produced by the Association of Washington Cities.  The project was also highlighted in the FHWA Livability in Transportation Report.  Finally, a WSDOT research project was approved to develop the Washington Complete Streets Guidebook.
• A number of communities are implementing different elements from the study.  Roslyn immediately striped the bicycle lane through their community, marking the famous Coal Mines Trail.  Morton developed a large Safe Routes to Schools project proposal with full community support, secured funding for it, and moved forward with construction.  The community of Concrete moved a stymied TE grant to completion with full community support immediately after the community design work.  Clallam Bay is constructing a combined transit and community center developed through a community design workshop.
• In summary, by actively building consensus and addressing a range of both agency and community concerns, and community design, the State Highways as Main Streets:  A Study of Community Design and Visioning helped ensure traffic flow, livability, safety, and tourism in the state.  It also supports efficient project delivery with fewer changes – keeping delays and costs down.  It is estimated that using the recommended process may save $9 million per project.

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Performance Measurement of Contact Sensitive Solutions in Urban Thoroughfare Design

BEVERLY STOREY, Texas Transportation Institute

Slides [PDF , 1.6M]

Beverly Storey discussed the core principles of CSS, possible performance measures associated with CSS, and applying performance measures at the agency level.  She described a case study in Fort Worth applying CSS and performance measures.  Beverly covered the following topics in her presentation.

• Core principles of CSS include developing a shared stakeholder vision and a comprehensive understanding of contexts.  Ongoing collaboration to achieve consensus and maintaining flexibility and creativity are also key principles.
• Performance measures associated with CSS and urban thoroughfare design may be used to assess the performance of the agency, project, and context.  Performance measures may provide a perspective on the process, outputs, and outcomes.  Performance measures may use conventional and direct participant quantification methods, as well as other data.
• Agency-level applications may include a number of steps.  The CSS strategies and principles are typically included in the project development phase and are used to assist with the identification of project objectives.  Performance measures are developed next, with consideration given to data needs and data availability.  Identifying the appropriate estimation method is the next step, followed by conducting the performance assessment.
• A number of project performance outcomes may be realized from CSS including improvements in operations, safety, mobility by mode, and appearance.  Other possible outcomes include improved service to users, positive effects on adjacent activities, creating lasting value for the community, and supporting quality of life.
• Lancaster Avenue in Fort Worth provides an example of the application of CSS.  The case study focuses on the reconstruction of the downtown segment of Lancaster Avenue, which was a state highway.  The project promoted redevelopment and revitalization.  The highway segment was transferred from the Texas Department of Transportation (TxDOT) to the city upon completion of the project.
• The project goal was to reconstruct Lancaster Avenue to aid redevelopment.  There was a commitment to collaboration between the city and TxDOT.  Another goal was to transfer Lancaster Avenue to the city after reconstruction and to delete it from the state highway system.  Conveying surplus right-of-way to the city was part of this transfer.  Participating agencies and groups included TxDOT, the city of Fort Worth, Fort Worth South, and Downtown Fort Worth, Inc.  The Lancaster Steering Committee included 33 members and was chaired by the mayor of Fort Worth.  The Lancaster Task Force included staff from the different agencies, departments, and groups.
• A three-day steering committee workshop was used to identify and gain consensus on the project vision and goals.  The goals included creating a great pedestrian street, promoting infill mixed-use development along the corridor, showcasing the area for existing historical buildings, and linking the south side of downtown Fort Worth with the medical district.  It is possible to examine if the project vision and goals have been realized from an agency, project, and context perspectives.
• The first project performance measure was to create a great pedestrian street.  Elements examined in this measure included the total sidewalk area and curb extensions, crosswalk lengths, median widths, and pedestrian refuges.  Walkability, perceived safety, aesthetic components, streetscape features, and lighting represent other elements associated with this measure.  The second performance measure was to promote infill mixed-use development along the corridor.  Elements examined included acreage available for redevelopment, the number of sites redeveloped, and the increased tax base for the city.  The third performance measure was providing a showcase area for existing historical buildings.  The number of historic buildings renovated was the metric used for this measure.  The fourth performance measure was linking the south side of downtown Fort Worth with the medical district.  Connectivity throughout the site and with surrounding parcels were used the metric for this measure.
• The evaluation conducted after the project was completed indicates that the project vision and goals were accomplished.  Creating a great pedestrian street was accomplished through wider sidewalks, an enhanced streetscape environment, sidewalk extensions, pedestrian countdown signals, midblock crosswalks, and on-street parking at key locations.  Pedestrian scaled lighting was provided and light sculptures were added in the roadway median.
• Promoting infill mixed-use development along the corridor was accomplished by using surplus right-of-way for new developments.  The T&P terminal building was restored for reuse.  The Sheraton Hotel and Spa was refurbished.  A new Omni Hotel and Condominium complex was constructed.
• The goal of showcasing the area for existing historical buildings was accomplished by renovating the T&P building to make it the T&P lofts.  The goal of creating a link between the medical district and the south side of Fort Worth was accomplished through improving pedestrian connectivity to the project perimeter and throughout the re-development parcels.
• Potential outcomes from using CSS in the project included stakeholder collaboration, a more people-oriented environment, and attracting economic development and re-development of historic buildings.  Other outcomes included increased corridor property valuation, and the aesthetics of the area were greatly improved through re-development that was facilitated and supported by the street design.  The project also resulted in less adverse environmental impacts.  Finally, the project improved support for TxDOT, and the image of the agency greatly benefited.

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