City Council Meeting - FINAL

Return to the Search Page Return to the Agenda

12.C.

Meeting Date:	11/01/2022
From:	Martin Ince, Multi-Modal Planner

Information

TITLE:

Consideration and Adoption of Resolution No. 2022-50: A resolution of the Flagstaff City Council adopting the Active Transportation Master Plan

STAFF RECOMMENDED ACTION:

1) Read Resolution No. 2022-50 by title only
2) City Clerk reads Resolution No. 2022-50 by title only (if approved above)
3) Adopt Resolution No.2022-50

Executive Summary:

This resolution will adopt the City’s Active Transportation Master Plan (ATMP), a guide to enhance walking and biking by making them more useful, comfortable, safe, attractive and convenient as modes of transportation. Over the years, a variety of City of Flagstaff plans and policy documents have highlighted the importance of walking and biking, starting with the Flagstaff Regional Plan. The ATMP advances the City’s vision and goals for walking and biking by providing direction and details on becoming a more pedestrian- and bicycle-friendly community.

Financial Impact:

The ATMP helps guide City capital expenditures, through identification and prioritization of a variety of pedestrian and bicycle projects to be built over the next 20 years with funding from the transportation sales tax and First Mile Last Mile grant. The plan also positions the City to pursue grants and other opportunities to build walking and biking infrastructure.

Adoption of the ATMP does not have a direct financial impact; however in the future additional funding and staff resources will be required to implement programmatic recommendations in the plan. Additional maintenance resources will also be needed to take care of new pedestrian and bicycle infrastructure as recommended in the draft ATMP.

Policy Impact:

The ATMP does not change existing Regional Plan goals and policies relevant to walking and biking, but it does provide additional detail regarding how to implement them. The document also includes its own goals, policies, and strategies for walking and biking. There are 32 policies organized around six topics – infrastructure, maintenance and operations, support and encouragement, safety, transportation and land use planning, and evaluation – as well as a long list of detailed strategies and actions for each of the 32 policies.

Connection to PBB Priorities/Objectives, Carbon Neutrality Plan & Regional Plan:

Priority Based Budget Key Community Priorities and Objectives

Safe & Healthy Community
Foster a safe, secure, and healthy community

Inclusive & Engaged Community
Advance social equity and social justice in Flagstaff
Enhance community outreach and engagement opportunities
Ensure city facilities, services, and programs are accessible for all residents

Sustainable, Innovative Infrastructure
Deliver outstanding services to residents through a healthy, well maintained infrastructure system
Utilize existing long-range plan(s) that identify the community's future infrastructure needs and all associated costs
Identify smart traffic management, multi-modal transportation, and alternative energy opportunities

Livable Community
Provide amenities and activities that support a healthy lifestyle

Environmental Stewardship
Implement sustainable building practices and alternative energy and transportation options
Implement, maintain and further the Climate Action and Adaptation Plan (CAAP)

Carbon Neutrality Plan

Goal: Equitable Systems
Strategies
ES-1: Incorporate equity as a foundational element of every climate action the City develops and implements.
ES-2: Proactively engage community members on an ongoing basis.

Goal: Decreased Dependence on Cars
Strategies:
DD-1: Encourage vibrancy, appropriate density, and attainability in existing neighborhoods, so that more residents live within walking distance of their daily needs.
DD-2: Create inclusive networks for walking and biking that are continuous, attractive, safe, comprehensive, and convenient for people of all ages.
DD-3: Encourage Flagstaff residents and visitors to walk, bike, roll and take the bus.

Goal: Electric Mobility
Strategies
EM-2: Welcome electric micro-mobility devices as legitimate, healthy, affordable, and low-carbon modes of transportation.

Regional Plan

Goal T.1. Improve mobility and access throughout the region.
Policy T.1.1. Integrate a balanced, multimodal, regional transportation system.
Policy T.1.2. Apply Complete Street Guidelines to accommodate all appropriate modes of travel in transportation improvement projects.
Policy T.1.5. Manage the operation and interaction of all modal systems for efficiency, effectiveness, safety, and to best mitigate traffic congestion.
Policy T.1.6. Provide and promote strategies that increase alternate modes of travel and demand for vehicular travel to reduce peak period traffic.

Goal T.2. Improve transportation safety and efficiency for all modes.
Policy T.2.1. Design infrastructure to provide safe and efficient movement of vehicles, bicycles, and pedestrians.
Policy T.2.3. Provide safety programs and infrastructure to protect the most vulnerable travelers, including the young, elderly, mobility impaired, pedestrians, and bicyclists.

Goal T.3. Provide transportation infrastructure that is conducive to conservation, preservation, and development goals to avoid, minimize, or mitigate impacts on the natural and built environment.
Policy T.3.2. Promote transportation systems that reduce the use of fossil fuels and eventually replace with carbon neutral alternatives.
Policy T.3.4. Actively manage parking, including cost and supply, to support land use, transportation, and economic development goals.
Policy T.3.8. Promote transportation options such as increased public transit and more bike lanes to reduce congestion, fuel consumption, and overall carbon emissions and promote walkable community design.

Goal T.4. Promote transportation infrastructure and services that enhance the quality of life of the communities within the region.
Policy T.4.1. Promote context sensitive solutions (CSS) supportive of planned land uses, integration of related infrastructure needs, and desired community character elements in all transportation investments.
Policy T.4.2. Design all gateway corridors, streets, roads, and highways to safely and attractively accommodate all transportation users with contextual landscaping and appropriate architectural features.

Goal T.5. Increase the availability and use of pedestrian infrastructure, including FUTS, as a critical element of a safe and livable community.
Policy T.5.1. Provide accessible pedestrian infrastructure with all public and private street construction and reconstruction projects.
Policy T.5.2. Improve pedestrian visibility and safety and raise awareness of the benefits of walking.
Policy T.5.3. Identify specific pedestrian mobility and accessibility challenges and develop a program to build and maintain necessary improvements.
Policy T.5.4. Design streets with continuous pedestrian infrastructure of sufficient width to provide safe, accessible use and opportunities for shelter.

Goal T.6. Provide for bicycling as a safe and efficient means of transportation and recreation.
Policy T.6.1. Expand recognition of bicycling as a legitimate and beneficial form of transportation.
Policy T.6.2. Establish and maintain a comprehensive, consistent, and highly connected system of bikeways and FUTS trails.
Policy T.6.3. Educate bicyclists and motorists about bicyclist safety through education programs, enforcement, and detailed crash analyses.
Policy T.6.4. Encourage bikeways and bicycle infrastructure to serve the needs of a full range of bicyclist experience levels.
Policy T.6.5. Provide short- and long-term bicycle parking where bicyclists want to travel.
Policy T6.6. Integrate policies to increase bicycling and meet the needs of bicyclists into all relevant plans, policies, studies, strategies, and regulations.

Goal T.7. Provide a high-quality, safe, convenient, accessible public transportation system, where feasible, to serve as an attractive alternative to single-occupant vehicles.
Policy T.7.5. Incorporate adopted plans and policies for non-motorized and public transportation in the permitting process for all development or land use proposals, including provisions for efficient access and mobility, and convenient links between pedestrian, bicycle, and transit facilities.

Goal T.9. Strengthen and support rail service opportunities for the region’s businesses and travelers.
Policy T.9.4. Increase the number of grade-separated railroad crossings.

Goal T.10. Strengthen and expand the role of Flagstaff Pulliam Airport as the dominant hub for passenger, air freight, public safety flights, and other services in northern Arizona.
Policy T.10.2. Improve multimodal access and service to and from the airport including transit, bicycle, and parking services.

Goal T.11. Build and sustain public support for the implementation of transportation planning goals and policies, including the financial underpinnings of the Plan, by actively seeking meaningful community involvement.
Policy T.11.2. Approach public involvement proactively throughout regional transportation planning, prioritization, and programming processes, including open access to communications, meetings, and documents related to the Plan.
Policy T.11.3. Include and involve all segments of the population, including those potentially underrepresented such as the elderly, low-income, and minorities
Policy T.11.4. Attempt to equitably distribute the burdens and benefits of transportation investments to all segments of the community.

Goal NH.1. Foster and maintain healthy and diverse urban, suburban, and rural neighborhoods in the Flagstaff region.
Policy NH.1.3. Interconnect existing and new neighborhoods through patterns of development, with complete streets, sidewalks, and trails.

Goal OS.1. The region has a system of open lands, such as undeveloped natural areas, wildlife corridors and habitat areas, trails, access to public lands, and greenways to support the natural environment that sustains our quality of life, cultural heritage, and ecosystem health.
Policy OS.1.4. Use open space as opportunities for non-motorized connectivity, to interact with nature, and to enjoy the views and quiet.

Goal WR.5. Manage watersheds and stormwater to address flooding concerns, water quality, environmental protections, and rainwater harvesting.
Policy WR.5.2. Incorporate pedestrian access, trails, and watchable wildlife opportunities into natural watercourses when practical.

Goal E.1. Increase energy efficiency.
Policy E.1.5. Promote and encourage the expansion and use of energy-efficient modes of transportation:
a. Public transportation
b. Bicycles
c. Pedestrians

Goal CC.4. Design and develop all projects to be contextually sensitive, to enhance a positive image and identity for the region.
Policy CC.4.1. Design streetscapes to be context sensitive and transportation systems to reflect the desired land use while balancing the needs of all modes for traffic safety and construction and maintenance costs.
Policy CC.4.4. Design streets and parking lots to balance automobile facilities, recognize human-scale and pedestrian needs, and accentuate the surrounding environment.

Goal CC.5. Support and promote art, science, and education resources for all to experience.
Policy CC.5.4. Complete sidewalks and Flagstaff Urban Trails System connections for all schools, community colleges, and university campuses.

Goal LU.1. Invest in existing neighborhoods and activity centers for the purpose of developing complete, and
connected places.
Policy LU.1.4. Attract private investment by reinvesting in transportation infrastructure improvements as well as public utilities infrastructure for desired development size.

Goal LU.2. Develop Flagstaff ’s Greenfields in accordance with the Regional Plan and within the growth boundary.
Policy LU.2.1. Design new neighborhoods that embody the characteristics of Flagstaff’s favorite neighborhoods – that is, with a mix of uses, a variety of housing types and densities, public spaces, and greater connectivity with multimodal transportation options.

Goal LU.10. Increase the proportion of urban neighborhoods to achieve walkable, compact growth.
Policy LU.10.1. Prioritize connectivity within all urban neighborhoods and activity centers.
Policy LU.10.2. Support on-street parking, shared lots, and parking structures.
Policy LU.10.7. Invest in infrastructure and right-of-way enhancements that favor the pedestrian and transit as an incentive for private investment in urban neighborhoods and activity centers.

Goal LU.12. Accommodate pedestrians, bicyclists, transit riders, and private cars to supplement downtown’s status as the best-served and most accessible location in the region.
Policy LU.12.1. Invest in downtown’s streets and sidewalks so that they remain Flagstaff’s premiere public spaces.
Policy LU.12.7. Provide multiple routes and pathways for vehicular and pedestrian movement.
Policy LU.12.8. Provide for strong connections from the Flagstaff Medical Campus to the Northern Arizona University campus via pedestrian paths, bicycle connections, streets, and transit service.
Policy LU.12.9. As defined in the FUTS Master Plan, include trail access points, bicycle parking, and bicycle facilities.

Goal LU.13. Increase the variety of housing options and expand opportunities for employment and neighborhood shopping within all suburban neighborhoods.
Policy LU.13.1. Prioritize connectivity for walking, biking, and driving within and between surrounding neighborhoods.
Policy LU.13.9. Use open space and FUTS trails to provide walking and biking links from residential uses to employment, shopping, schools, parks, and neighborwoods.

Goal LU.14. Maintain the character of existing rural communities.
Policy LU.14.4. Connect rural neighborhoods using roads, trails (equestrian, foot, and bicycle), and public access to the National Forest.

Goal LU.15. Plan for and encourage employee-intensive uses throughout the area as activity centers, corridors,
research and development offices, business parks, and light industrial areas to encourage efficient infrastructure and multimodal commuting.
Policy LU.15.4. Accommodate safe and convenient walking, biking, and transit facilities in existing and proposed employment centers.

Goal LU.19. Develop a manageable evolution of the main corridors into contextual place makers.
Policy LU.19.4. Balance automobile use, parking, bicycle access, while prioritizing pedestrian safety along all corridors.

Has There Been Previous Council Decision on This:

Options and Alternatives:

Option A. Adopt Resolution 2022-50 as submitted and adopt the Active Transportation Master Plan
Option B. Adopt Resolution 2022-50 with changes
Option C. Do not adopt Resolution 2022-50

Background/History:

The ATMP is intended to serve as a guide to making walking and biking in Flagstaff more convenient, useful, comfortable, attractive, and safe. The Flagstaff Regional Plan describes an overall vision for transportation and lists a variety of goals of policies to achieve the vision, including a number of goals and policies directly related to walking and biking. The ATMP will provide the details to advance the overall vision and implement the goals and policies.

Key Considerations:

The intent of the ATMP

Provide policy guidance to advance the transportation goals and vision of the Regional Plan
Establish specific goals and strategies to support and promote walking and biking
Identify and prioritize needed pedestrian and bicycle infrastructure
Set forth planning and design guidance for walking and biking
Facilitate a fundamental change (the Big Shift) in Flagstaff’s approach to transportation planning

Plan contents

1 Introduction: describes the policy context, how the plan was developed, and how it will be used; closed with a list of guiding principles and a description of an overall approach.

2 Current conditions: provides an accounting of the current status of walking and biking, based on existing facilities, mode share, crash data, and national indicators.

3 Goals and policies: includes specific goals for walking and biking, as well as 32 policies organized around six topics. Appendix A supplements this chapter with a list of potential strategies and actions for each of the 32 policies.

4 Outcomes, indicators, and targets: lists desired results and measures, and establishes attainable targets for the short and long term.

5 Implementation: describes a broad range of opportunities to implement the plan, including priority actions for the first year and first five years.

6 Planning considerations: a discussion of how walking and biking fit into the larger contexts of transportation and land use planning.

7 Design guidance: provides information on design considerations for pedestrian and bicycle facilities, as well as streets and intersections.

8 Infrastructure recommendations:

How the plan is used

Goals and policies in the ATMP can provide guidance on walking and biking for other planning documents, including the Regional Plan and the Regional Transportation Plan.
The ATMP includes a prioritized list of pedestrian and bicycle infrastructure projects that will be included in the City’s five-year capital program.
Policies and strategies can be reflected in the City’s performance-based budgeting process and incorporated into budget requests, strategic plans, and work programs.
The ATMP does not create any new standards or regulations, but it can be used to help identify revisions to the Zoning Code and Engineering Standards to support walking and biking. The document can also inform how City processes and practices can be made more walk and bike friendly.
The ATMP also does not create any new requirements for private development, but it can serve as guidance for pedestrian and bicycle accommodation.
Design and planning guidance can also be used with other City capital projects that includes pedestrian and bicycle components, like new roadway projects.

Guiding principles

Walking and biking are important to Flagstaff and reflect the values of the community.
Flagstaff has a significant opportunity to expand walking and biking, but it takes a concerted effort by the City
More people will choose to walk and bike when it is comfortable, convenient, and useful
Walking and biking are critical elements of a robust transportation system
Walking and biking are integral parts of a larger context of land use, community character, and street design.
Mobility – the ability to travel freely to access our daily needs and activities – is a fundamental human need.
Better transportation options and enhanced mobility support equity
Sustainable transportation options are critical to meeting the City’s carbon neutrality goals
Active transportation supports a healthy and resilient economy

Recommended approach

Be more transformational than incremental
Prioritize pedestrians and bicyclists
Take a well-rounded approach to transportation.
Pursue a wide range of solutions for mobility
Use Travel Demand Management (TDM) as a guiding principle
Don’t overbuild for cars

Community Benefits and Considerations:

Walking and biking support a variety of community benefits, both directly and indirectly:

Health: walking and biking are linked to a number of health benefits.
Safety: providing facilities for walking and biking can help make roadways safer for all users, including motorists.
Mobility: more viable transportation options mean better mobility for the entire community.
Transit: walking and biking help support transit by making it easier for riders to get to transit stops and extending the reach of bus lines into neighborhoods. Transit supports walking and biking by serving as a backup safety net.
Equity: more viable transportation options improve mobility for all segments of the population, including the elderly, individuals with mobility challenges, and low-income populations.
Environment: walking and biking reduce reliance on fossil fuels and lowers greenhouse gas emissions, which provides numerous benefits such as improved local air quality and better health.
Housing: transportation typically accounts for about 20 percent of a typical household income; when transportation costs are reduced, more household income is available for housing (H+T index).
Economy: pedestrian and bicycle-friendly commercial areas promote street-level activity, vibrancy, and vitality. Communities with strong walking, biking, and trails infrastructure gain a competitive edge in attracting and keeping businesses and jobs.
Sustainability: walking and biking also support Flagstaff's goal of carbon neutrality. In Flagstaff, transportation accounts for about 30 percent of greenhouse gas emissions.

Community Involvement:

The community was engaged in the preparation of this draft plan in a number of ways:

Community surveys: a total of 15 community surveys related to walking and biking have been conducted since 2016. Six of these were done specifically in support of the ATMP, and another nine were conducted for other projects but are relevant to walking and biking.

Public outreach: staff have conversed with hundreds of residents about pedestrian and bicycle issues at numerous community events, including Earth Day, Bike-to-Work Week, Arizona Trail Day, and the Flagstaff Community Market. Two walking and biking summits were hosted in late 2017, during which approximately 100 attendees were given an opportunity to provide feedback and complete a survey.

PAC and BAC meetings: since 2014, discussion of the ATMP has been a standing item on the monthly agendas of the City’s Pedestrian Advisory Committee (PAC) and Bicycle Advisory Committee (BAC). The draft ATMP has also been discussed at the several Transportation Commission meetings.

Other boards and commission: the draft ATMP was presented to a variety of City commission over the past year, including the Beautification and Public Art Commission, Commission on Diversity Awareness, Commission on Inclusion and Adaptive Living, Housing Commission, Open Spaces Commission, Parks and Recreation Commission, Planning and Zoning Commission, Sustainability Commission, and Tourism Commission.

Attachments
Res. 2022-50
Ex. A. - Draft Active Transportation Master Plan
Presentation