Title:
Title
Approval of the City of Sacramento Complete Streets Policy
End
FileID
File ID: 2019-01623
Location
Location: Citywide
Recommendation:
Recommendation
Adopt a Resolution: 1) approving the environmental review for the Complete Streets Policy as a subsequent project under the Master Environmental Impact Report; and 2) adopting the Complete Streets Policy
Contact: Jennifer Donlon Wyant, Transportation Planning Manager (916) 808-5913; Valerie Hermanson, Transportation Program Analyst, (916) 808-6788; David Edrosolan, Interim City Traffic Engineer (916) 808-5974, Department of Public Works
Body
Presenter: None
Attachments:
1-Description/Analysis
2-Attachment A: Letter of Support from Sacramento Metropolitan Air Quality Management District
3-Resolution
4-Exhibit A-Complete Streets Policy
Description/Analysis
Issue Detail: “Complete Streets” is a term that that refers to roadways planned, designed, and operated to enable safer, attractive, and comfortable access and travel for all roadway users, including pedestrians, bicyclists, persons with disabilities, seniors, children, motorists, goods movement, public transportation, and emergency responders. In the past, many streets were designed with primarily automobile movement in mind.
Many of the City of Sacramento’s adopted plans and policies support and promote Complete Streets, including the General Plan, Vision Zero Action Plan, Bicycle Master Plan, Pedestrian Master Plan, Central City Specific Plan, and many other plans, guidelines, and projects. The City, however, does not have a formal consolidated Complete Streets Policy with criteria and implementation. A Complete Streets Policy will enable the City to better coordinate multimodal transportation planning, design, and operation activities under a single comprehensive “Complete Streets” framework. The intent of the Complete Streets Policy is to help direct implementation of the City’s goals of encouraging active transportation, eliminating traffic fatalities and serious injuries, reducing vehicle miles traveled and single occupancy trips, and reducing greenhouse gas emissions. It can also better align and complement existing efforts and initiatives such as the Mayors’ Commission on Climate Change.
Complete Streets are not a new concept, and there are a variety of resources, organizations, and exemplary policies to guide the development of a policy for the City of Sacramento. Staff developed the draft Policy based on Smart Growth America | National Complete Streets Coalition’s Best Complete Streets Policies of 2018, which identified specific components needed for a strong Complete Streets Policy. The report also provided a scoring methodology to rank each policy and identified specific elements needed to create an exemplary policy.
Based on best practice review and input from the Active Transportation Commission, the Disabilities Advisory Commission, and interviews with stakeholder organizations, City staff developed the attached Resolution and Policy.
The Policy recognizes equity as a consideration and includes implementation measures such as update its work zone detour policy to accommodate walking, bicycling, and transit, as well as integrating performance measures related to existing Vision Zero efforts.
Policy Considerations: The recommended Policy is consistent with Sacramento 2035 General Plan policies, including:
Goal M 1.1 Comprehensive Transportation System. Provide a multimodal transportation system that supports the social, economic and environmental vision, goals, and objectives of the City, and is effectively planned, funded, managed, operated, and maintained.
Policy M 1.1.1 Right-of-Ways. The City shall preserve and manage rights-of-way consistent with: the circulation diagram, the City Street Design Standards, the goal to provide Complete Streets as described in Goal M 4.2, and the modal priorities for each street segment and intersection established in Policy M 4.4.1: Roadway Network Development, Street Typology System.
Policy M 1.2.1 Multimodal Choices. The City shall develop an integrated, multimodal transportation system that improves the attractiveness of walking, bicycling, and riding transit over time to increase travel choices and aid in achieving a more balanced transportation system and reducing air pollution and greenhouse gas emissions.
Goal M 1.3 Barrier Removal. Improve accessibility and system connectivity by removing physical and operational barriers to safe travel.
Policy M 1.3.1 Grid Network. To promote efficient travel for all modes, the City shall require all new residential, commercial, or mixed-use development that proposes or is required to construct or extend streets to develop a transportation network that is well-connected, both internally and to off-site networks preferably with a grid or modified grid form. The City shall require private developments to provide internal complete streets (see Goal M.4.2) that connect to the existing roadway system.
Policy M 1.3.5 Connections to Transit Stations. The City shall provide and improve connections to transit stations by identifying, roadways, bikeways and pedestrian improvements within walking distance (1/2 mile) of existing and planned transit stations. Such improvements shall emphasize the development of complete streets.
Goal M 4.2 The City shall plan, design, operate and maintain all streets and roadways to accommodate and promote safe and convenient travel for all users - pedestrians, bicyclists, transit riders, and persons of all abilities, as well as freight and motor vehicle drivers.
Policy M 4.2.1 Accommodate All Users. The City shall ensure that all new roadway projects and any reconstruction projects designate sufficient travel space for all users including bicyclists, pedestrians, transit riders, and motorists except where pedestrians and bicyclists are prohibited by law from using a given facility.
Policy M 4.2.5 Multi-Modal Corridors. Consistent with the Roadway Network and Street Typologies established in this General Plan, the City shall designate multimodal corridors in the Central City, within and between urban centers, along major transit lines, and/or along commercial corridors appropriate for comprehensive multimodal corridor planning and targeted investment in transit, bikeway, and pedestrian path improvements if discretionary funds become available.
Policy M 4.2.6 Identify and Fill Gaps in Complete Streets. The City shall identify streets that can be made “complete” either through a reduction in the number or width of travel lanes or through two-way conversions, with consideration for emergency vehicle operations. The City shall consider including new bikeways, sidewalks, on-street parking, and exclusive transit lanes on these streets by re- arranging and/or re-allocating how the available space within the public right of way issued. All new street configurations shall provide for adequate emergency vehicle operation.
Economic Impacts: None.
Environmental Considerations:
California Environmental Quality Act (CEQA): Staff has reviewed the Complete Streets Policy for consistency with the 2035 General Plan and has determined that the proposed Policy will be consistent with the overall objectives, goals and policies of the general plan. The project will provide direction for roadways to be planned, designed, and operated to enable safer, attractive, and comfortable access and travel for all roadway users, including pedestrians, bicyclists, persons with disabilities, seniors, children, motorists, goods movement, public transportation, and emergency responders.
Environmental Planning Services prepared an initial study, which concludes the Policy would not result in any additional significant environmental effects not previously analyzed in the Master Environmental Impact Report (EIR). Pursuant to CEQA Guidelines section 15177, the Complete Streets Policy is a subsequent project within the scope of the Master EIR for the City of Sacramento 2035 General Plan, certified by the City as lead agency on March 3, 2015, and no additional environmental review for the project is required. No new additional mitigation measures or alternatives are required. The initial study, that was posted October 22 through November 21, 2019, may be viewed at:
<http://www.cityofsacramento.org/Community-Development/Planning/Environmental/Impact-Reports>
Sustainability: The recommended action supports the Climate Action Plan goal to create a connected multi-modal transportation network that increases the use of sustainable modes of transportation (e.g., walking, biking, transit) and reduces dependence on automobiles.
Commission/Committee Action: On August 15, 2019, the Active Transportation Commission heard staff recommendations, public comments, and provided comments on the draft Policy. The Commission moved that City Council consider public input received at the Active Transportation Commission meeting on August 15, 2019, which are outlined below.
1. The Complete Streets Policy should include a provision to require the City of Sacramento staff to reach out to stakeholders before designing any work zone detour policy. The creation of a work zone detour policy is critically important. There is construction occurring frequently and it is challenging for pedestrians and bicyclists.
2. Currently private properties are responsible for the maintenance of sidewalks outside of their property. For the city to have a Complete Streets Policy, the City needs to take responsibility for sidewalk maintenance.
3. The Complete Streets Policy should require a grid network and not prefer it.
4. The Policy should include criteria for how often or how frequently there should be a “safe” crossing at a street.
5. The Policy should have stronger language that directs the City to prioritize and clarify how disadvantaged communities will be prioritized with that investment.
6. The Policy should state mode share goals for walking, biking, and transit.
7. The Policy should clearly state a priority mode. Commenter recommended the City consider Milwaukee’s best practice policy, which created a priority hierarchy that starts with pedestrians followed by the next most vulnerable roadway user.
8. The Policy should have more language around prioritizing transit and closing first and last mile gaps. The City should also develop a first/last mile gap closure plan. Commenter recommended reviewing LA Metro’s plan.
9. The Complete Streets Policy should call out the need to update the City’s Pedestrian Master Plan or develop a policy for active transportation that can dig into the granular level where there are existing gaps. Commenter also requested that the active transportation policy provide data around marked and unmarked crosswalks.
10. The Policy should have stronger language around interdepartmental coordination and how the City will prioritize Complete Streets not just in Public Works, but other departments too. Commenter requested further information about trainings and interdepartmental meetings where each department sends a member.
11. The Complete Streets Policy should include a curb management strategy, which would also be another opportunity to create an innovative Complete Streets Policy.
12. The Complete Streets Policy should include language to support placemaking and arts on street.
All the recommendations from the Active Transportation Commission were considered. Some of the recommendations are considered not feasible at this time and others are more appropriately addressed through other efforts.
On September 4, 2019, the Disability Advisory Commission heard staff recommendations and provided comments. The Commission requested that pedestrian be further defined to include within parenthesis “includes persons who use personal mobility or assistive devices.” No formal motions were made.
Rationale for Recommendation: The Policy formalizes the City’s intent to plan, design, and direct the construction and upgrade of streets so they safely serve all users of all ages and abilities. The Policy also creates a transparent, rational, and equitable framework for the application of Complete Streets principles to all roadway projects - new streets or retrofitting existing streets.
Financial Considerations: The policy incorporates many practices the City currently implements and actions already adopted by City Council through the Vision Zero Action Plan and other plans and guidelines. The policy does not speak to how to fund construction of complete streets. There are also a number of proposed implementation actions that will require staff time. These activities will be covered using the Public Works Department’s existing Operating Budget.
Local Business Enterprise (LBE): Not applicable.