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04.11.22 TAB Agenda 7 CAN Plan & PMP UpdateCITY OF BOULDER TRANSPORTATION ADVISORY BOARD AGENDA ITEM MEETING DATE: April 11, 2022 EXECUTIVE SUMMARY The City of Boulder has been working for decades to create a safe, equitable and reliable transportation and mobility system that offers travel choices and supports achieving our climate goals (2019 Transportation Master Plan, Boulder Valley Comprehensive Plan). As a result, we see significant numbers of people walking, bicycling, scooting. and taking transit as they move about or travel in and out of the city. Although we have made great progress, more work remains to be done along our arterial streets, which often have higher traffic volumes and speeds and can be more complex to navigate compared to other streets in the city. While arterials make up only 17% of streets within the city, findings from the Vision Zero Boulder: Safe Streets Report (SSR) show that citywide 67% of total crashes resulting in severe injury or fatality occur on arterials. In response, the city is focusing its investments and resources to design and construct improvements on a “Core Arterial Network” (CAN). The CAN is the connected system of protected bicycle lanes, intersection enhancements, pedestrian facilities, and transit facility upgrades that will help reduce the potential for severe crashes and make it more comfortable and convenient for people to get where they need to go along Boulder’s main corridors. The 13 corridors and associated street segments identified in the CAN form a prioritized subset of the Transportation & Mobility Department’s work plan over the next 3-5 years for project initiation, ongoing project efforts, prioritization of staff efforts and city resources, and pursuit of grant and external funding (Figure 1). AGENDA TITLE: Staff Briefing and TAB Feedback Regarding Core Arterial Network (CAN) Planning and Pavement Management Program Update STAFF: Erika Vandenbrande, Director of Transportation and Mobility Natalie Stiffler, Deputy Director of Transportation and Mobility Gerrit Slater, Principal Transportation Projects Engineer Devin Joslin, Principal Traffic Engineer Valerie Watson, Transportation Planning Manager James Smith, Pavement Management Program Manager Dave “DK” Kemp, Senior Transportation Planner 04.11.22 TAB Agenda 7 CAN Plan & PMP Update Page 1 of 10 FIGURE 1 – CORE ARTERIAL NETWORK MAP 04.11.22 TAB Agenda 7 CAN Plan & PMP Update Page 2 of 10 In February 2022, the Boulder City Council, in partnership with the Transportation Advisory Board (TAB), elevated work on the CAN as one of its 12 priorities for city department efforts. Council emphasized a need to “be bold” and to accelerate progress on CAN project development, design, community engagement, and implementation. Staff have developed an overall CAN initiative work plan and schedule. The immediate next steps for the CAN initiative involve developing project management and community engagement strategies for CAN Priority Corridors, for which the department will initiate design and project development efforts over 2022-2023. In advance of a City Council Study Session tentatively scheduled for November 2022, staff will return to update TAB on overall progress tentatively in October 2022. By Fall 2022, staff aim to have completed initial community engagement to inform the project development process for Baseline, as well as progress on the conceptual design for the corridor. Staff also aim to initiate project development and community engagement on Iris Avenue in Fall 2022. In Fall 2023, staff aim to initiate project development and community engagement for Folsom Street. This memorandum provides: an overview on the CAN and its role in the mobility system; the CAN’s relationship to the city’s Pavement Management Program (PMP) which incorporates street design upgrades and safety improvements into annual roadway pavement resurfacing work; the overall work plan, funding strategy, and community engagement considerations for the CAN; and a general update on PMP efforts, CAN-related or otherwise. BACKGROUND Core Arterial Network (CAN) The 2022 Vision Zero Boulder: Safe Streets Report found that a majority (67%) of traffic crashes that result in severe injury or fatality occur on Boulder’s arterial streets. 44% of total citywide severe and fatal crashes occur along streets identified in the CAN work plan. As a Vison Zero city, we believe no one should be killed or severely injured on our streets. In addition to the devastating impact of severe crashes on people’s lives, the Safe Streets Report estimates the societal cost of severe injury and fatal crashes in Boulder between 2018-2020 alone at $100 million. In tandem with the overall CAN initiative, the forthcoming update to the city’s Vision Zero Action Plan will inform project development along CAN corridors, identifying potential additional safety countermeasures best suited to mitigate crashes along this network of streets and complement foundational project elements. Strategic investment in targeted safety countermeasures is proven to pay dividends considering their high benefit to cost ratio. In addition to addressing the human costs of these crashes, the CAN will also help Boulder make progress toward its climate goals. With many local and regional transit service options and more than 300 miles of bikeways, including 73 miles of multi-use paths and nearly 90 bicycle and pedestrian underpasses, Boulder has an extensive network of multimodal infrastructure that makes it easier to choose non-vehicular forms of travel and reduce greenhouse gas emissions. The CAN will enhance connections between these existing facilities and the places people live 04.11.22 TAB Agenda 7 CAN Plan & PMP Update Page 3 of 10 and work and their other daily community destinations. Relationship to Other Plans and Adopted City Policy The focus on the Core Arterial Network provides a clear path forward for improvements to these streets, many of which have already been identified in the city’s adopted transportation plans such as the 2019 Transportation Master Plan and Low-Stress Walk and Bike Network Plan. Concentrating the city’s resources and pursing grant funding for these projects will also address the goals of overarching city plans like the Boulder Valley Comprehensive Plan and Climate Action Plan. As shown in Figure 1, each of the 13 CAN corridors has a general designation that describes the modal emphasis – or potential for either bikeway- or bus-focused improvements – along these streets. Bus-focused improvements include project elements that contribute to service efficiency and rider experience and comfort. Bikeway-focused improvements include the introduction or upgrade of project elements, such as vertical and/or horizontal separation, that contribute to bicycle facility safety, quality, connectivity, and user comfort. Specific emphasis on project elements that reduce conflicts between modes and enhance connectivity for people walking and accessing the bus along these streets are common to all CAN corridors. Several of the CAN corridors are also identified as regional arterial Bus Rapid Transit (BRT) corridors in the Northwest Area Mobility Study (NAMS) network. High-frequency transit service, paired with bus-focused improvements, offers a convenient travel option that is time-competitive with the automobile and an opportunity to reduce the nearly 80-percent of Boulder commute trips that are currently drive-alone. With one exception (Pearl Street), all of the CAN bikeway corridors were identified in the city’s Low-Stress Walk and Bike Network Plan as candidates for bicycle facility design that incorporates vertical separation, such as protected bicycle lanes or multi-use paths. As a next step, project development for each CAN corridor will build from the policy direction of these adopted city transportation plans and closely explore existing conditions, advance conceptual designs infused with input from community engagement, and examine the feasibility of proposed project elements responsive to the needs of each corridor. Three of the 13 CAN corridors (Baseline Road, Colorado Avenue, and Folsom Street) have street segments that are identified in the city’s Pavement Management Program (PMP) for future roadway pavement resurfacing. This offers an opportunity to design and implement safety and connectivity improvements along these three street segments in tandem with pavement resurfacing, a best practice for maximizing implementation and resource efficiency. Background on the overall PMP is discussed below. Pavement Management Program (PMP) The Pavement Management Program (PMP), like other areas of transportation maintenance (e.g., snow/ice removal, street sweeping, pothole filling and sidewalk/multi-use path repair) is considered an essential service needed to maintain our existing infrastructure. Additions to these projects beyond the scope of maintenance, such as buffered bike lanes, bike boxes, painted bulb- outs, bollards and green colored pavement markings, are considered enhancements designed to 04.11.22 TAB Agenda 7 CAN Plan & PMP Update Page 4 of 10 achieve our Transportation Master Plan goals. The 2019 Safe Streets Report, corresponding Vision Zero Action Plan and the Low-Stress Walk and Bike Network Plan help to guide staff with these strategic installation decisions. Staff in Transportation and Mobility consult the Low-Stress Walk and Bike Network Plan and when financially and physically feasible, work toward implementing the recommended pedestrian and bicycle facilities from the plan. This usually occurs through larger capital projects which have budgeted funds for these types of project components; and which also provide the appropriate public engagement process to address projects that may be more impactful, such as, travel lane repurposing or the removal of on-street parking. The intent of the Pavement Management Program Mobility Enhancements Initiative is to provide low-cost safety upgrades to meet Low-Stress Walk and Bike Network Plan goals on streets planned for annual resurfacing. Several considerations are analyzed to determine the feasibility of accommodating Low-Stress design recommendations through this effort. These considerations include: • Existing adequate roadway width (the scope of this initiative does not include the repurposing of travel lanes or acquisition of right-of-way) • Operational changes possible without a significant traffic study (the scope of this initiative does not include funding nor a timeline for conducting a study of this scale) • No removal of on-street parking is required nor other changes that would trigger significant community engagement processes (given the time and funding parking studies would require) • Notation of where future planning projects and future corridor studies will provide more robust enhancements and bicycle and pedestrian facilities. ANALYSIS Core Arterial Network (CAN) Work Plan Boulder City Council identified 13 individual corridors along the city’s arterial street network where the city will focus its efforts over the next several years. Projects along these streets will enhance connectivity along the CAN – amplifying previous investments and ensuring a predictable, safe journey between where people live and work and major destinations, such as schools, parks, grocery stores, and shopping, to name a few. As shown in Figure 2, many projects are already underway to improve arterial safety and others will be initiated over the next 3-5 years. Staff efforts and city resources will be shifted from some of the previously scoped efforts as part of the department’s work plan to initiate design and community engagement for projects on the CAN that are not already underway. Staff and resource reallocation will include: the delay of an update to the city’s Transportation Master Plan; pause of design, community engagement, and construction of street improvements as part of the Neighborhood Speed Management Program (NSMP) and Neighborhood GreenStreets program; and Vision Zero improvements along NSMP and Neighborhood GreenStreets street segments. 04.11.22 TAB Agenda 7 CAN Plan & PMP Update Page 5 of 10 FIGURE 2 – CORE ARTERIAL NETWORK (CAN) WORK PLAN SCHEDULE Active Projects Design and community engagement have already started on seven of the 13 CAN corridors, with construction anticipated to start between 2023 and 2024. Staff have also been working on updates to some of the city’s Design and Construction Standards, an effort to better align the technical street design standards used for projects with the city’s vision for a multimodal and connected transportation system. Projects with ongoing and active work include: • 28th Street Improvement Projects (Canyon Boulevard to Iris Avenue) • 30th Street Corridor Improvements: 04.11.22 TAB Agenda 7 CAN Plan & PMP Update Page 6 of 10 o 30th Street Protected Bike Lanes (Arapahoe Avenue to Colorado Avenue) o 30th Street and Colorado Avenue Underpass/Protected Intersection •Colorado Avenue Corridor Improvements: o Colorado Avenue and 28th Street Intersection Improvements Project •East Arapahoe Multimodal Corridor: o East Arapahoe Avenue Multi-use Path and Transit Stops Project (Foothills Parkway to Cherryvale Road) •Baseline Avenue: o Pedestrian Signal at Baseline Avenue and Canyon Creek Road o Signal Upgrades at Baseline Avenue and Mohawk Drive •13th Street Neighborhood GreenStreet (enhanced crossing at 15th/Iris Streets) •Gunbarrel Connection: Valmont Road Multi-use Path (61st to S. Boulder Creek Path) Upcoming Priority Corridors Three CAN street segments are Priority Corridors for the overall Core Arterial Network (Baseline Road, Iris Avenue, and Folsom Street). Design and community engagement for projects along these Priority Corridors will begin starting in 2022 through 2024. These projects were selected for their value to the network in terms of providing enhanced multimodal north- south and east-west connectivity currently lacking in those areas of the city, as well as the opportunity to couple improvements with scheduled pavement resurfacing. Summer 2022 – Staff will initiate design and community engagement for Baseline Road, an east- west corridor connecting residents, students, and a bus route in East Boulder. This project is expected to be part of the Pavement Management Program (PMP) that will incorporate street design upgrades and safety improvements into annual pavement resurfacing. Baseline is also currently under consideration as a candidate for inclusion in the 2022-25 Transportation Improvement Program (TIP) Subregional application cycle to fund construction of permanent, capital-intensive multimodal transportation improvements. Fall 2022 – Staff will initiate design and community engagement on Iris Avenue, another east- west corridor connecting areas of North Boulder. Fall 2023 – Staff will initiate design and community engagement for Folsom Street, a key north- south connection in Central Boulder, and part of the PMP from Pine Street to Colorado Avenue, that will link previously implemented protected bicycle lanes on Folsom St from Valmont Road to Pine Street. CAN Priority Corridors include: •Baseline Road from 30th Street to Foothills Parkway •Iris Avenue from Broadway to 28th Street •Folsom Street from Pine Street to Colorado Avenue 04.11.22 TAB Agenda 7 CAN Plan & PMP Update Page 7 of 10 Future Projects The remaining corridors will see design and community engagement initiated in 2023 or beyond. Future work will be focused on the following CAN corridors: •Broadway (Transit Improvement) from Baseline Road to Table Mesa Drive •Valmont Road (Bikeway Improvement) from Folsom Street to 28th Street •Downtown Study CAN Work Plan Integration with the PMP As discussed above, three of the CAN corridors are slated for the upcoming PMP work plan, including two CAN Priority Corridors (Baseline Road and Folsom Street), as well as Colorado Avenue from Folsom Street to 30th Street. The work plan for the PMP, inclusive of CAN corridors and a host of other streets, is described below. PMP 2022-23 Planned Improvements Lehigh Street Staff is managing improvements along Lehigh Street in two phases. Phase I is the installation of a Safe Routes to School-funded project currently underway, which includes the implementation of pedestrian crossings and intersection safety improvements near Mesa Elementary and the installation of a paved multi-use path through Bear Creek Park connecting Lehigh Street and Bear Creek Elementary. Phase II of the Lehigh Street improvements will occur in the second quarter of 2022, when Lehigh is scheduled to be resurfaced from Table Mesa Drive to just south of Galena Way, where Greenbriar Street begins. Staff is planning to install buffered bike lanes in both directions between Table Mesa Drive and Cragmoor Road. Installing the buffered bike lane configuration will require the removal of the existing center two-way left turn lane. Based on traffic volume data, staff believes that the removal of the center two-way left turn lane is appropriate and will not negatively impact traffic operations on Lehigh and that the planned improvements will increase the level of comfort and safety for pedestrians and bicyclists, particularly for students walking and biking to school. On Lehigh Street south of Cragmoor Road, a southbound bike lane (climbing lane) will be installed just south of Lafayette Street and will continue on as a shared lane facility from Lafayette Street to Galena Way. In the northbound lane (downhill), a shared lane will be installed from Cragmoor Road to Galena Way. 17th Street In conjunction with the 2022 street resurfacing projects, staff is planning bike improvements along 17th Street between Pearl Street and Macky Drive. The Low-Stress Walk and Bike Network Plan identifies “bike lanes, preferably buffered” as the selected bike facility for the 17th Street corridor. The transportation facilities along the corridor are currently at, or near, minimum widths due to 04.11.22 TAB Agenda 7 CAN Plan & PMP Update Page 8 of 10 constrained space. These include 5’ bike lanes exclusive of the gutter plan, 7-8’ parking stalls and 10’ travel lanes. To accommodate buffered bike lanes facilities, parking would need to be removed to provide roadway space. As previously noted, the removal of parking is not currently included in the PMP Mobility Enhancements Initiative, nor is it recommended due to the need for short-term parking for people living and working along the corridor. Many of the proposed bike improvements along 17th Street occur at each of the intersections along the corridor to highlight the presence of cyclists and ensure sufficient space in the bike lane is provided. The planning and design phase will continue through spring followed by an opportunity for community input prior to installation this summer. Moorhead Drive In 2023, Moorhead Drive is tentatively slated for street resurfacing. Staff will begin studying the corridor in 2022 to determine preliminary design concepts. COMMUNITY ENGAGEMENT For the Core Arterial Network work plan, community engagement is an integral part of the overall project development process. Specific engagement strategies will be developed for each individual corridor per the City’s Community Engagement Framework which will range from the “inform” to “consult” level of engagement depending upon the project scope and scale, timeline constraints, and other considerations. Staff’s goal is to strengthen existing relationships with community-based organizations and advocacy partners, as well as develop new relationships to broaden the reach and quality of community engagement. In addition to more traditional engagement approaches, staff is exploring a possible collaboration via the Boulder Walks program to offer community engagement support for individual projects – such as walk audits, Spanish-language and older adult-focused engagement activities, and community celebrations – tailored to the needs and context of individual corridor efforts. Per the City of Boulder’s Racial Equity Plan, staff will foster an environment of respect and will conduct a dignified process that builds trust and confidence in both the city’s efforts as well as overall, long-term project support. For the PMP, non-CAN corridors (such as Lehigh and 17th), considering the roadway space constraints, the scope of the PMP - Mobility Enhancements Initiative and the funding available, the “Inform” level of participation is anticipated. Community engagement on these projects will provide community members with balanced and objective information to assist in understanding project design alternatives, opportunities, constraints and solutions and to keep the public informed on the proposed improvements. FUNDING A funding strategy for the CAN is under development. Seven of the 13 corridors already have funding for design and/or construction. Staff have tentatively identified funds from the existing 2022 budget and anticipated 2023 budget that can be repurposed from other departmental work plan efforts to support the initiation of design and community engagement along the three CAN Priority Corridors in 2022 and 2023. These funding sources were previously earmarked for an 04.11.22 TAB Agenda 7 CAN Plan & PMP Update Page 9 of 10 update to the Transportation Master Plan (which will now be delayed until 2023), the Neighborhood Speed Management Program (NSMP), the Neighborhood GreenStreets program, as well as a small pocket of funds allocated to Vision Zero improvements along NSMP and GreenStreets projects. Beyond these project initiation funds for the three CAN Priority Corridors, staff will work to scope additional budgetary needs for planning and capital efforts for the remainder of CAN initiative needs. Staff have identified the opportunity to pursue external funding through the current Subregional Call for Projects of the Denver Regional Council of Governments (DRCOG) Transportation Improvement Program (TIP) including the following projects located on CAN corridors: • Baseline Road from 30th Street to Foothills Parkway • Colorado Avenue from Folsom Street to Regent Drive • Preliminary Design of 30th Street from SH-7 to SH-119 • East Arapahoe (SH-7) Bridge Replacement • Arapahoe (SH-7) and 30th Street protected intersection • Broadway Bus Enhancements at Table Mesa and Regent TAB ACTION REQUESTED Receive and file memorandum. Offer feedback on CAN work plan, funding plan, and community engagement strategy. 04.11.22 TAB Agenda 7 CAN Plan & PMP Update Page 10 of 10