HomeMy WebLinkAboutResolution No. 4244, Providing for a Complete Streets Policy.pdf Commission Memorandum
REPORT TO: Honorable Mayor and City Commission
FROM: Chris Saunders, Interim Planning Director
Chris Kukulski, City Manager
SUBJECT: Planning Board recommendation re Complete Streets, Resolution 4244
MEETING DATE: February 22, 2010
AGENDA ITEM TYPE: Action.
RECOMMENDATION: Consider the recommended resolution and decide whether or not to
adopt the policy with or without revisions.
BACKGROUND: The City of Bozeman has had standards protecting and supporting pedestrian
travel since the 1880’s. The City’s recent transportation plans, 1993, 2001, and 2009 have all
placed significant emphasis on meeting the needs for pedestrian, bicycle, and other forms of
travel in addition to personal motor vehicles.
The Complete Streets concept is intended to ensure that the full range of transportation needs by
the diverse range of users is met. The City has many elements of complete streets presently
included in our transportation plan and development standards. We do not have a single point of
decision formally adopting a complete streets policy. The growth policy encourages the adoption
of a formal complete streets policy.
At their December 1, 2009 regular meeting, the Planning Board formally voted to recommend to
the City Commission the adoption of a complete streets policy by Commission resolution. They
provided a basis for the resolution and requested Staff to place their intent into formal Resolution
format. The formatted resolution is attached.
The resolution recognizes that there are additional details which will need to be established to
fully execute the policy. These details would likely be included in the City’s design and
specifications. Examples are setting thresholds of when additional work is done; e.g. pothole
filling does not require any other work while sidewalk replacement will also ensure ADA
compliant corner ramps. Guidance in this area is contained in Section 6.1.2 of the transportation
plan. This resolution is to formally establish the City’s policy by Commission action.
A complete streets policy does not require strict uniformity on every project, but recognizes the
need to be appropriate to the context of the street. More about Complete Streets may be found at
www.completestreets.org.
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FISCAL EFFECTS: Some additional staff time would be required to review and revise
procedures and documentation. As the City executed its maintenance and project development
activities some additional time would required to evaluate and decide options for improving
completeness of the street. The City could establish thresholds for when more intensive work
would be considered which would limit this additional time commitment.
ALTERNATIVES: As suggested by the City Commission.
Attachments: Draft resolution 4244
Planning Board transmittal letter
Planning Board minutes
Report compiled on: February 17, 2010
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COMMISSION RESOLUTION NO. 4244
A RESOLUTION OF THE CITY COMMISSION OF BOZEMAN, MONTANA
PROVIDING FOR A COMPLETE STREETS POLICY AND DIRECTING STAFF TO
DEVELOP PERFORMANCE MEASURES AND IMPLEMENTATION STRATEGIES
TO ENABLE SAFE AND CONVENIENT ACCESS TO OUR TRANSPORTATION
SYSTEM FOR ALL USERS, OF ALL AGES AND ABILITIES, INCLUDING
PEDESTRIANS, BICYCLISTS, PEOPLE WITH DISABILITIES, TRANSIT RIDERS,
AND MOTOR VEHICLE DRIVERS.
WHEREAS, the Bozeman Community Plan and the Greater Bozeman Area
Transportation Plan have established as a goal and future policy a commitment to providing
alternatives to the individual passenger vehicle to ensure that a variety of travel options exist
which allow safe, logical, and balanced transportation choices; and
WHEREAS, the Bozeman Community Plan and the Greater Bozeman Area
Transportation Plan recommend the adoption of a Complete Streets policy; and
WHEREAS, a Complete Street is one that is designed and operated to safely
accommodate all users, including but not limited to: motorists, pedestrians, bicyclists, transit
riders, and people of all ages and abilities; and
WHEREAS, a Complete Streets philosophy causes transportation agencies to design and
operate the entire right of way, both along and across the corridor, to encompass users of all
types and to promote safe access and travel for the users; and
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WHEREAS, increasing active transportation (e.g., walking, bicycling and using public
transportation) offers the potential for improved public health, economic development, a cleaner
environment, reduced transportation costs, enhanced community connections, social equity, and
more livable communities; and
WHEREAS, Complete Streets create safe routes for children to walk and bicycle to
school; and
WHEREAS, a Complete Street is comprised of many different elements; these elements
may include, but are not limited to: sidewalks, bike lanes, crosswalks, wide shoulders, medians,
bus pullouts, special bus lanes, raised crosswalks, audible pedestrian signals, sidewalk bulb-outs,
and more; and
WHEREAS, Complete Streets elements that are used can vary from project to project,
but the end result is still to achieve a connected network that is safe and effective for all modes
of travel; and
WHEREAS, a Complete Streets policy contributes to a comprehensive, integrated, and
connected network for all transportation modes; and
WHEREAS, a Complete Streets concept also recognizes the need for flexibility: that all
streets are different and user needs should be balanced; and
WHEREAS, any exceptions to Complete Streets implementation must be clearly and
specifically stated within the policy and require high-level approvals so that there is no confusion
what type of design is required; and
WHEREAS, the roadway design must fit in with the context of the community while
using the latest and best standards; and
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WHEREAS, all streets are unique and require different levels of attention, so an
effective policy must be flexible enough to accommodate all types of roads and be adopted by
every agency;
NOW, THEREFORE, BE IT RESOLVED BY THE CITY COMMISSION OF THE
CITY OF BOZEMAN, MONTANA, that the City of Bozeman adopts the following Complete
Streets Policy; and
AND BE IT FURTHER RESOLVED, that effective implementation of this Complete
Streets Policy will require the City of Bozeman to review their procedures and, if necessary,
restructure them, to accommodate all users on every project; and
AND BE IT FURTHER RESOLVED, that applicable changes to design manuals or
public works standards may need to be made to fully encompass the safety and needs of all users
by employing the latest in design standards and innovation; and
AND BE IT FURTHER RESOLVED, that periodic education and training of planners
and engineers is also recommended to ensure the latest techniques in balancing the needs of
roadway users are being applied; and
AND BE IT FURTHER RESOLVED, that the City of Bozeman will work with other
jurisdictions and transportation agencies within its planning area to incorporate a Complete
Streets philosophy and encourage the Montana Department of Transportation, Gallatin County
and other municipalities to adopt similar policies; and
AND BE IT FURTHER RESOLVED, that existing data sources and projects should be
tapped to track how well the streets are serving all users.
Section 1
Complete Street Policy
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The City of Bozeman will plan for, design, construct, operate, and maintain appropriate
facilities for pedestrians, bicyclists, transit vehicles and riders, children, the elderly, and people
with disabilities in all new construction, maintenance activities, and retrofit or reconstruction
projects subject to the exceptions contained herein.
The City of Bozeman understands that major street improvements are not a requirement
through maintenance activities and should not be expected. However, maintenance activities do
present some opportunities that can improve the environment for other roadway users. For
example, while the construction of a sidewalk may not be appropriate as part of maintenance
activities, facilities such as improved crosswalks, or bike lanes, or a shoulder stripe could be
included in a routine re-stripe of a roadway if adequate space exists and the facility is designated
to have such facilities in the Bozeman Area Transportation Plan. (See Section 6.6 of the Greater
Bozeman Area Transportation Plan 2007 Update for additional examples of improvements that
could be associated with various roadway maintenance activities).
The City of Bozeman has and will continue to incorporate Complete Streets principles
into: The Greater Bozeman Area Transportation Plan, the Bozeman Community Plan, the Parks
Recreation Open Space Trails (PROST) Plan, the Bozeman Unified Development Ordinance
(UDO), and other plans, manuals, rules, regulations and programs as appropriate.
Complete Streets principles will be applied on single projects, privately funded
development, and incrementally through a series of smaller improvements, operations and
maintenance activities over time. All sources of transportation funding, public and private,
should be drawn upon to implement Complete Streets within the City of Bozeman. The City of
Bozeman believes that maximum financial flexibility is important to implement Complete
Streets principles.
Complete Streets principles will be applied in street construction, retrofit, reconstruction,
and maintenance projects except in unusual or extraordinary circumstances contained herein:
1. Bicyclists and pedestrians are prohibited by law from using the facility. In this
case, alternative facilities and accommodations shall be provided within the same
transportation corridor.
2. Where the existing right-of-way does not allow for the accommodation of all
users. In this case alternatives shall be explored such as the use of revised travel lane
configurations, paved shoulders, signage, traffic calming, education or enforcement to
accommodate pedestrians, cyclists, transit, and persons with disabilities.
3. The cost of establishing bikeways or walkways or other accommodations
would be disproportionate to the need, particularly if alternative facilities are available
within a reasonable walking and/or bicycling distance.
4. Where there is no need, including future need.
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5. Where application of Complete Streets principles is unnecessary or
inappropriate because it would be contrary to public safety.
Any project that does not include Complete Streets principles based on the above
exceptions should have said determination confirmed and filed with the City Commission for
review.
Section 2
Severability.
If any provision of this policy or the application thereof to any person or circumstances is held
invalid, such invalidity shall not affect the other provisions of this policy which may be given
effect without the invalid provision or application and, to this end, the provisions of this policy
are declared to be severable.
Section 3
Effective Date.
This complete street policy shall be in full force and effect upon passage.
DATED this 22ND day of February, 2010.
____________________________________
JEFFREY K. KRAUSS
Mayor
ATTEST:
____________________________________
STACY ULMEN, CMC
City Clerk
APPROVED AS TO FORM:
___________________________________
GREG SULLIVAN
Bozeman City Attorney
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City of Bozeman Planning Board Minutes of December 1, 2009. 1
PLANNING BOARD MINUTES
TUESDAY, DECEMBER 1, 2009
ITEM 1. CALL TO ORDER AND ATTENDANCE
President Caldwell called the regular meeting of the Planning Board to order at 7:11 p.m. in the
Community Meeting Room, City Hall, 121 North Rouse Avenue, Bozeman, Montana and
directed the secretary to take attendance.
Members Present: Staff Present:
Cathy Costakis Chris Saunders, Assistant Planning Director
Brian Caldwell, President Tara Hastie, Recording Secretary
Erik Henyon, Vice President
Sean Becker
Ed Sypinski
Members Absent: Guests Present:
Bill Quinn Bill Brooks
Donna Swarthout Nate Ward
Dawn Smith
Chris Mehl
ITEM 2. PUBLIC COMMENT (0-15 MINUTES)
{Limited to any public matter within the jurisdiction of the Planning Board and not
scheduled on this agenda. Three-minute time limit per speaker.}
Seeing no public comment forthcoming, President Caldwell closed the public comment portion of
the meeting.
ITEM 3. MINUTES OF NOVEMBER 17, 2009
MOTION: Vice President Henyon moved, Ms. Costakis seconded, to approve the minutes of
November 3, 2009 as presented. The motion carried 5-0. Those voting aye being President
Caldwell, Vice President Henyon, Mr. Sypinski, Ms. Costakis, and Mr. Becker. Those voting nay
being none.
ITEM 4. DRAFT “COMPLETE STREETS POLICY ADOPTION” CITY
COMMISSION LETTER (Costakis)
President Caldwell introduced Ms. Costakis for presentation of the item. Ms. Costakis stated the
reason for the agenda item was the Board’s work on the Growth Policy. She stated the Board
had indicated the desire to forward a recommendation to the City Commission for adoption of a
Complete Streets Policy. She suggested the recommendations for Complete Streets should
instead be changed to policies and then formally adopted. She directed the Board to the ten
elements of the Complete Streets Policy and had included the language in resolution form for
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adoption by the Commission. She stated the beginning of the resolution explained the provisions
of the draft Complete Streets Policy and explained that the vision of the community had been
stated on the first page. She stated a “Complete Street” was defined within the language and
basically included parts of chapter six of the adopted Transportation Plan for Bozeman and noted
that language. She added that all of the proposed exceptions had been included from the
Transportation Plan.
Mr. Sypinski asked what would trigger the Complete Streets Policy. Ms. Costakis responded that
maintenance would trigger the policy. Mr. Sypinski asked for clarification of which forms of
maintenance would trigger the policy enforcement. Ms. Costakis responded minimal maintenance
would not trigger full Complete Streets compliance, but major street maintenance would trigger
more compliance; each site would be reviewed individually. President Caldwell added that there
would be a balance based on the type of maintenance being done. Ms. Costakis stated the
language was not a “hard and fast line” but should be considered based on the value of the work
and the need for improvements.
Assistant Director Saunders stated that the professional judgment of the people doing the work
would have some say in whether or not maintenance was considered major or minor. He
suggested minor revisions to the language presented would make the policy more clear and
address instances where unreasonable increases in expense would be more evident. President
Caldwell asked if in the review of chapter 44 of the UDO there was evidence of the ten items
within the Complete Streets Policy and he thought the void in implementation was in some of the
incomplete sidewalks in and around some of the schools within the City; he asked if an added
benefit of the policy is that if it were adopted, it would bring more attention to some of the local
disconnects. Assistant Director Saunders responded most of those sidewalks were not
constructed with public funds, but instead were the responsibility of the adjacent owners; he
thought the idea could be pursued to make it easier for the landowners and Commissioners to see
the need for sidewalks without direct public funding.
President Caldwell stated that common opinion was that 80% of the policy was in place and the
adoption of the policy would be good for the community and it would be an important policy to
proceed with; he added more credence would be given to sidewalk installation in the community.
He suggested the items that would trigger the policy should be clearer and he was supportive of
the policy. Ms. Costakis stated she had not changed much of the language from the
Transportation Plan as it had already been adopted and added that getting too explicit might raise
feelings for the applicant of being strapped into the recommendations.
Assistant Director Saunders suggested the Commission would prefer to see precise text from the
Board and he had identified minor changes that would not change the intent of the policy; he
suggested inclusion of the letter and the draft resolution as a recommendation to the City
Commission. Ms. Costakis read the draft letter to the Commission for the Board; she stated she
had intended to include that other community’s involvement in the adoption of the policy, but she
was uncertain whether or not it would help. President Caldwell suggested including the positive
recognition of the City to acknowledge their ongoing efforts to provide a “Complete Streets”
ordinance.
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Mr. Becker suggested that at some level the resolution was ambiguous and in the wrong
direction; the use of the words “cost”, “need”, “reasonability”, etc. and added that economic
feasibility was difficult to gauge. Ms. Costakis stated she would like to make the policy more
stringent, but had taken the language Mr. Becker was referencing directly from the adopted
Transportation Plan. Mr. Becker suggested the adoption of the policy could be put at risk by
being too specific.
President Caldwell asked if the deferring sidewalks on a subdivision would make or break the
feasibility of the subdivision, would it necessarily be a bad thing due to so many subdivisions
going bankrupt and threatening the economy of the community. He suggested the policy could be
used as an economic development strategy. Mr. Becker stated he thought economic development
and feasibility were two different animals; he suggested the language “unless otherwise prohibited
by ordinance” be included in the draft resolution. He cited a guy along the highway who wants to
put in an extra bay and it would be silly to require him to improve the site to the standards
included in the policy. Assistant Director Saunders responded that a business could be expanded
by a minimum of 10% up to possibly 20% before Site Plan review would be triggered and would
not require full review process; he noted that defined decision points, already established, would
prevent the figurative “tail wagging the dog” scenario. President Caldwell suggested the inclusion
of the language “unusual and extraordinary circumstances” should be included and the
establishment of the City Commission making the final decision. Assistant Director Saunders
noted that language to the affect had already been included. President Caldwell concurred.
Assistant Director Saunders stated that the reference in the document to the “improvements” as a
trigger was not necessarily pertinent to rights of way as the standards to improvements of the
right of way were already in place in existing regulations. Mr. Becker suggested the resolution as
presented did not have the teeth to provide for enforcement. Mr. Sypinski responded that the
performance measures and standards would be left to Staff as explained in the proposed language.
Assistant Director Saunders responded that the proposed language implied and, at times,
explicitly listed that each instance would be evaluated and reviewed. President Caldwell added
that Ms. Costakis had included the Transportation Plan language to provide for consistency. Ms.
Costakis added that exceptions had been included in more detail within other communities
adopted Complete Streets Policies and suggested a better set of exceptions could be sought. She
stated she also wanted to include the City working with other transportation agencies such as the
County or State and noted the suggested of cooperation between the entities could be included.
President Caldwell stated he had been unable to download the Transportation Plan for the last six
months and suggested some of the language be included as part of the proposed resolution.
President Caldwell opened the item for public comment. The two members of the public in
attendance simultaneously stated the discussion sounded like a good idea but did not provide their
names. Seeing no further public comment forthcoming, President Caldwell closed the public
comment portion of the meeting.
Vice President Henyon stated he felt that the Transportation Plan and Growth Policy language
made the draft resolution kind of redundant, but he was supportive if the adoption of the
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resolution would make the policy more accepted. He suggested Staff review the document prior
to adoption by the City Commission. Ms. Costakis stated the whole point of the draft was that
the Commission had never formally adopted the policy but had recommended its adoption.
Mr. Sypinski stated that part of the implementation strategy was to adopt a Complete Streets
policy so he did not think it was being redundant. He stated he was supportive of either Staff
reviewing the resolution prior to City Commission adoption or forwarding a recommendation of
approval at the evening’s meeting. He suggested he would not mind seeing cooperation between
County and State entities included in the language.
MOTION: Ms. Costakis moved, Mr. Sypinski seconded, to forward the draft Complete Streets
resolution to Staff for comments and to forward a recommendation of approval to the City
Commission for the draft resolution of the “Complete Streets Policy”.
Mr. Sypinski asked if the Board would have a chance to review the document prior to Staff
forwarding the resolution to the City Commission. President Caldwell responded that he thought
Staff saw the intent of the resolution and would institute their comments appropriately; he
suggested the motion remain as is with support from the Board.
Vice President Henyon suggested the addition of language to provide for cooperation with
County and State transportation entities; he stated he did not think Staff would necessarily need
to review the document. President Caldwell responded that he thought it would be potentially
disrespectful not to acknowledge the efforts of Staff by allowing them to make comments.
Assistant Director Saunders offered to provide comments and stated the reference to the 2020
Plan was incorrect and should instead be referenced as the Bozeman Community Plan. Mr.
Becker suggested a time frame be included and stated that it would be better if the resolution was
in the format normally reviewed by Commission; he suggested the draft be forwarded with the
suggestions by Board members included. Mr. Sypinski made a friendly amendment that Staff
should review the resolution prior to Commission review to provide the correct format. Assistant
Director Saunders responded he would like to make a few suggested word changes prior to the
Board forwarding a recommendation directly to the Commission; page 2, second paragraph, the
inclusion of language “may be appropriate in some instances” and the removal of the word “may”
and its replacement with the word “could”. He suggested the inclusion of the word “has, and will
continue to” in the first sentence of the next paragraph to illustrate that the City has been
including those requirements. Ms. Costakis withdrew her motion.
MOTION: Ms. Costakis moved, Mr. Sypinski seconded, to forward a recommendation of
approval to the City Commission for the draft resolution of the Complete Streets Policy with edits
as recommended by Staff and the addition of language to provide for cooperation between the
City and other transportation jurisdictions.
Ms. Costakis stated she thought the bike board was considering forwarding a similar letter to the
Commission and suggested she could include other board’s/commission’s letters. President
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Caldwell responded he did not think the other letters would be necessary and could be considered
by the Commission at a later date. Mr. Sypinski concurred with President Caldwell.
Mr. Becker added the draft resolution would be considered by the Bicycle Advisory Board
tomorrow at their meeting.
The motion carried 5-0. Those voting aye being President Caldwell, Vice President Henyon,
Mr. Sypinski, Ms. Costakis, and Mr. Becker. Those voting nay being none.
ITEM 5. DISCUSSION ITEM
1. GROWTH POLICY AND ECONOMIC DEVELOPMENT PLAN IMPLEMENTATION
A public meeting to provide opportunity for Planning Board members to discuss
implementation of the Growth Policy and Economic Development Plans.
President Caldwell stated the previous item was a great example of what he had wanted to see in
the implementation of the Growth Policy.
Ms. Costakis stated she had gotten the Form Based Zoning CD from the State and offered to let
any member of the Board view the CD after she was finished with it.
Mr. Becker asked if the new definitions for Residential Emphasis Mixed Use in the Growth Policy
would be presented to the Planning Board for review. Assistant Director Saunders responded
that it was the zoning district that would need to be clarified instead of the Growth Policy
designations. Mr. Becker asked if Form Based Zoning could be used to define those designations
that had not yet been identified. Assistant Director Saunders responded Form Based zoning could
be included.
ITEM 6. NEW BUSINESS
Ms. Costakis stated she thought she would sign up for the Small Town Tour and Smart Growth
Conference and suggested the Board members would enjoy attending.
Assistant Director Saunders stated the Downtown Improvement Plan would be up for
consideration by the City Commission on 12/14/09. President Caldwell asked if the fervor against
the removal of public parking lots had been resolved; he added the literal interpretation of the
language the Planning Board had suggested regarding no net loss of parking spaces had been at
issue. Assistant Director Saunders responded the applicant had been attempting to resolve the
issue.
ITEM 7. ADJOURNMENT
Seeing there was no further business before the Board, President Caldwell adjourned the meeting
at 8:27 p.m.
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__________________________________ __________________________________
Brian Caldwell, President Chris Saunders, Assistant Planning Director
Planning Board Planning & Community Development
City of Bozeman City of Bozeman
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