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10.14.24 TAB Agenda 5 Snow & Ice Response Annual UpdateC I T Y O F B O U L D E R TRANSPORTATION ADVISORY BOARD AGENDA ITEM MEETING DATE: Oct. 14, 2024 AGENDA TITLE: Snow and Ice Response: Annual Update and Review Project – Operationalizing Recommendations for the 2024/2025 Winter Season STAFF: Valerie Watson, Interim Director of Transportation & Mobility Scott Schlecht, Transportation Maintenance Manager Elly Evans, Senior Project Manager Daniel Sheeter, Principal Transportation Planner Lucy O’Sullivan, Transportation Planner Karen Stiner, Senior Budget Analyst EXECUTIVE SUMMARY: This report provides TAB with the final update on the Transportation & Mobility Snow and Ice Response Review project, including 2024-2025 winter season operations. The project’s purpose was to review the City of Boulder’s Snow and Ice Response program’s service, understand community preferences and needs, assess industry service levels, and consider program changes to better meet goals and expectations. On November 13, 2023, staff brought a memo and presentation to TAB detailing draft program recommendations for the project based on analysis and community input. The item also outlined plans for additional community engagement in January and February 2024. On June 20, 2024, staff brought an information item to City Council describing the final program recommendations for the project. The item also outlined budgetary considerations for the program, including a budget neutral condition and an enhanced budget condition. The core of the project’s recommendations is to establish a storm size response framework that clearly defines which transportation facilities will be cleared and the level of service the community can expect based on the severity of the storm. This restructuring of the program allows staff to focus on priorities we heard from the community: major streets, key pedestrian crossings, multi-use paths and critical bike routes. Focusing on the amount of snowfall makes communicating the city’s snow response more understandable to the public compared to the previous system. 10.14.24 TAB Agenda 5 Snow & Ice Response Annual Update Page 1 of 11 Recognizing the citywide and departmental constrained budget condition, staff utilized the recommended storm size response framework to prioritize snow and ice response within the existing budget for the 2024/2025 season. Most recommendations for streets and the on-street bike network could be operationalized within the existing budget, resulting in a total of 425.2 lane miles of streets and 179.8 miles of the on-street bike network cleared. The current budget allowed for a modest increase in shoveled areas; 5 additional transit stops will be cleared to serve people with disabilities. In total, 345 shoveled area locations will be cleared by a combination of city contractors, Shovel-a-Stop volunteers, and partner agencies such as CU Boulder and RTD. All multi-use paths maintained by Transportation & Mobility will continue to be cleared. Staff reviewed the recommendations with a focus on racial equity by comparing the previous snow program and recommended snow program to the city’s racial equity index. Across streets, the on-street bike network, shoveled areas, and multi-use paths, the areas of highest equity priority receive the highest increases in snow service. Staff are developing materials to communicate the program’s changes for the upcoming 2024/2025 winter season to the community. ANNUAL UPDATE: During the 2023-2024 winter season, Boulder received 93.7 inches of snow, slightly above the long range average of 80 inches. Staff responded to 16 storm events and worked 51 snow response shifts. Seasonal spending was around $1.3 million, which is slightly less than the prior season. Spending reduction is attributable to lower quantities of deicer applied and fewer full crew deployments informed by the updated project recommendations for storm size decisions. Replacement trucks that were ordered in Q1 of 2022 have arrived and will be available for use during the upcoming snow season. One new truck has a wing plow that will increase efficiency, clearing an additional one-half travel lane per pass. Staff intend to add additional wing plows to the snow fleet in coming years through the fleet replacement schedule. FISCAL IMPACT The Snow and Ice Response program is managed by the Transportation & Mobility Department (T&M) with an adopted 2024 budget of $1.67M. The annual budget is developed each year based on historic averages of weather patterns and events. One or more significant snowfall events, or extenuating circumstances, can increase costs more than those allocations. If additional funding is required, reserves may be allocated through the city’s supplemental appropriations process. In addition, for the T&M department budget, the Boulder Police Department accounts for costs associated with sidewalk snow removal enforcement activities. Due to the constrained departmental budget condition, no base cost increases or enhancements are proposed for 2025 or future years. The 2024-2025 operations plan utilizes the recommended storm size response framework (see Attachment A) to prioritize snow and ice response within the existing budget. 10.14.24 TAB Agenda 5 Snow & Ice Response Annual Update Page 2 of 11 As part of the Snow and Ice Response Review project, staff identified additional program recommendations that require additional funding to operationalize. These recommendations are detailed in the June 20, 2024 information item. BACKGROUND: The project’s purpose was to review the Snow and Ice Response program’s service, understand community preferences and needs, assess industry service levels, and consider changes to the program to better meet goals and expectations. Boulder’s Snow and Ice Response program is a significant investment of city resources. It supports the city’s Sustainability, Equity, and Resilience Framework’s (SER) and the Transportation Master Plan’s visions of a safe, accessible, and sustainable multimodal transportation system connecting people with each other and where they want to go. The program’s previous level of service was not clearly defined, resulting in inefficiencies and increased costs to deliver snow services. The community had a range of expectations for snow response level of service and an unclear understanding of what services are provided and why. The Snow and Ice Response Review project began in Fall 2022 and concludes in 2024. The current schedule is as follows: •Fall 2022: Define the issue and provide contextual background. •Winter 2022/2023: Seek community feedback on existing program operations. •Spring-Summer 2023: Evaluate feedback and identify options. •Winter 2023/2024: Seek community feedback on options for program changes. •Spring-Summer 2024: Select overall recommended program changes and rationale; prioritize a subset of recommendations for implementation. •Summer-Fall 2024: Operationalize recommended storm size response framework within the existing budget. •Fall 2024: Communicate program changes to community and begin Winter 2024/2025 operations. The Snow and Ice Response program focuses on facilities maintained by the Transportation & Mobility Department. Systemwide, the department collaborates with agency partners also responsible for clearing streets and paths under their purview, including the Utilities and Parks and Recreation departments, The University of Colorado – Boulder (CU Boulder), Boulder County, the Colorado Department of Transportation (CDOT), Regional Transportation District (RTD), homeowners associations, and other private entities. On November 13, 2023, staff brought a memo and presentation to TAB detailing draft program recommendations for the project based on analysis and community input. The item also outlined plans for additional community engagement in January and February 2024. The core of the recommendations is to establish a storm size response framework that clearly defines which transportation facilities will be cleared and the level of service the community can expect based on the severity of the storm. 10.14.24 TAB Agenda 5 Snow & Ice Response Annual Update Page 3 of 11 On June 20, 2024, staff brought an information item to City Council describing the project’s final recommendations for program changes. The final recommendations were based on two rounds of community engagement, including meetings with key community groups (Community Connectors-in-Residence, the Center for People with Disabilities, National Federation for the Blind, Community Cycles, Boulder Transportation Connections and Boulder Chamber) and an analysis of existing program and departmental data. The item also outlined budgetary considerations for the program, including a budget neutral condition and an enhanced budget condition. UPDATED PROGRAM PURPOSE AND GOALS Guided by community input, Transportation & Mobility staff revised the Snow and Ice Response program purpose: The purpose of the Boulder Transportation & Mobility Department Snow and Ice Response program is to support multimodal travel and accessibility for all people by focusing on equity, safety, mobility and customer service before, during and after snow events. The Snow and Ice Response Review project has three revised goals that frame the recommendations: 1.The Boulder T&M Snow and Ice Response program equitably provides safe and accessible operating conditions for all modes of transportation. 2.The Boulder T&M Snow and Ice Response program continuously evaluates program performance, with data analysis and identifies changes for improvement in effectiveness and efficiency within available resources. 3.The Boulder T&M Snow and Ice Response program provides accessible, informative and timely customer service before, during and after storm events so there is a shared understanding of roles and service levels internally and externally. RECCOMENDATIONS FOR 2024/2025 WINTER SEASON Budget Neutral Condition Due to the constrained departmental budget condition, no base cost increases or enhancements are proposed for 2025 or future years. Staff utilized the recommended storm size response framework to prioritize snow and ice response within the existing budget for the 2024/2025 winter season. Other recommended elements that do not require new or adjusted funding levels will also be implemented, including the updated program purpose and goals, level of service criteria aligned with current resources, updated standard operating procedures, and the commitment to expanded data and communications. Storm Size Response Framework Staff developed a prioritized framework for service that is supported by data. This approach allows the city, together with partners, to continue to provide snow and ice response to the community, while also allowing flexibility to scale the program up or down in the future based on available staff, funding, criteria updates and changing infrastructure throughout Boulder. 10.14.24 TAB Agenda 5 Snow & Ice Response Annual Update Page 4 of 11 The previous program primarily used street classification to prioritize snow clearing across the city. Major streets were prioritized into primary and secondary routes and cleared on a recurring basis depending on conditions such as traffic, time of day the storm begins and snowfall rate. Conditional routes were cleared after major storms and/or prolonged periods of forecasted below-freezing temperatures. The recommended storm size response framework uses consensus forecasted storm size from local forecasters to guide resource deployment on streets, multi-use paths and shoveled areas. The framework divides snow and ice response into small (trace – 3 inches), medium (3 – 8 inches), and large (8+ inches) snow events. When snowfall exceeds the forecast, the department will strive to meet the higher level of service commitment as resources allow. Additionally, the city’s snow team may apply anti-icing agents to streets and paths, provided that: •The precipitation will start with snow (not rain or sleet). •There is enough time to apply between snow events. This restructuring of the program allows staff to focus on priorities we heard from the community: major streets, key pedestrian crossings, multi-use paths and critical bike routes. Focusing on the amount of snowfall makes communicating the city’s snow response more understandable to the public compared to the previous system. It is important to note that due to limited staff and equipment, the storm size framework timeframes (see Attachment A) may not be met given existing funding levels. However, the Snow and Ice Response program is committed to continuously evaluating program performance to identify changes for improvements in effectiveness and efficiency within available resources. Changes are typically incorporated into the program on an annual basis as the Department prepares adjustments to the operations plan prior to the winter season. Streets The storm size response framework divides streets maintained by the Transportation & Mobility Department into three priorities based on specific criteria. First priority street segments are high traffic streets and streets that serve critical highway and arterial emergency response routes and/or high ridership transit route stops. Second priority street segments are all remaining transit routes and critical emergency response routes, heavily-used alleys, and streets steeper than a 6.5% grade. Third priority street segments are streets with grades between 4% and 6.5%. During community engagement, staff heard a desire to incorporate specific criteria informed by the city’s Vision Zero policy. To confirm that the prioritization method within the storm size response framework aligns with Vision Zero goals, staff reviewed the Vision Zero High Risk Network (HRN) and confirmed all streets on the HRN will be cleared of snow and ice by first priority routes. Most recommendations for streets could be incorporated into the snow program for the 2024/2025 winter season within the current budget. Table 1 outlines the percentage of recommended streets that were incorporated into the final snow program for 2024/2025. 10.14.24 TAB Agenda 5 Snow & Ice Response Annual Update Page 5 of 11 Table 1: Streets recommendations incorporated into 2024/2025 snow program Street Type Recommended Lane Mileage Incorporated Lane Mileage Percent Recommended Lane Mileage Incorporated 1st Priority 196.7 216.8 110.2% 2nd Priority 204.2 171.4 83.9% 3rd Priority 32.5 26.0 80.0% Total 433.4 414.2 95.6% An additional 11 miles of street segments were added to ensure connectivity and provide plow drivers with safe and efficient turnaround points. In total, the 2024/2025 program will clear snow from 425.2 lane miles of streets, which is within 5 miles of the existing program. With a greater number of streets designated as 1st priority, there is an increase of streets that will see a higher level of service. Staff reviewed the recommendations with a focus on racial equity by comparing the previous snow program and recommended snow program to the city’s racial equity index. The index ranks Census block groups (from 600 to 3,000 people) on a scale of one to five (low to high racial and ethnic diversity and/or economic stress). The scale from one to five can also be interpreted as areas of lowest to highest priority, respectively. Table 2 shows this comparison. While most areas of the city see increases in snow-cleared lane miles, the areas of highest equity priority receive higher increases than areas of lower equity priority. Table 2: Percentage of residential lane miles cleared compared to the racial equity index Percentage of residential lane miles Racial Equity Indices Previous Program Recommended Program Change 5 (Highest Priority) 29% 36% 7% increase 4 29% 34% 5% increase 3 28% 37% 9% increase 2 34% 38% 4% increase 1 (Lowest Priority) 39% 36% 3% decrease On-Street Bike Network The storm size response framework also divides the on-street bike network into three priorities based on specific criteria. Core Arterial Network streets including protected bike lanes, protected intersections and floating bus stops are first priority streets. Second priority streets are high bicycle volume streets and on-street segments of Recommended Crosstown Routes, the north- south and east-west spines of the low-stress bike network. Streets with grades between 4% and 6.5% are third priority streets. As individual segments of protected bike lanes and protected intersections continue to be constructed in the city by CAN projects over the next two years, they will be added the plow network as 1st priority infrastructure with current resources. However, as more CAN projects are completed after 2026, there will be additional budget needs to clear snow from the expanded network of protected bike lanes and other related infrastructure. 10.14.24 TAB Agenda 5 Snow & Ice Response Annual Update Page 6 of 11 Most recommendations for the on-street bike network could be incorporated into the snow program within the current budget. Table 3 outlines the percentage of recommended streets that were incorporated into the final snow program for 2024/2025. Table 3: On-street bike network recommendations incorporated into 2024/2025 snow program Priority Recommended Lane Mileage Incorporated Lane Mileage Percent Recommended Mileage Incorporated 1st Priority 51.7 59.4 114.9% 2nd Priority 128.5 113.5 88.3% 3rd Priority 4.2 4.1 97.6% Total 184.4 177.0 96.0% An additional 2 miles of street segments were added to ensure connectivity and provide plow drivers with safe and efficient turnaround points. In total, the 2024/2025 program will clear snow from 179.8 lane miles of the on-street bike network. Similar to the streets equity analysis, staff analyzed the on-street bike network recommendations in comparison to the racial equity index to ensure the recommended program continues to clear snow equitably on the on -street bike network. Table 4 outlines the results of this analysis. The recommended program increases on - street bike network snow clearing services across all equity priority areas, with the highest priority census blocks seeing the greatest positive impact. Table 4: Percentage of on-street bike network cleared compared to the racial equity index Percentage of on-street bike network cleared Racial Equity Indices Previous Program Recommended Program Change 5 (Highest Priority) 81% 92% 11% increase 4 66% 79% 13% increase 3 71% 81% 10% increase 2 65% 80% 15% increase 1 (Lowest Priority) 77% 81% 4% increase Additional key gaps identified in the on-street bike network will be added to the 2024/2025 operations plan within the existing budget as an operational feasibility trial. These gaps were highly requested for snow clearing during community engagement and will better connect the network of lower-stress on-street bike facilities that are accessible during the winter. Due to staffing limitations, these segments will be cleared at the end of snow response operations. Identified segments for the operational feasibility trial include: •Connection between 19th Street and 26th Street via Upland Avenue and Tamarack Avenue – provides low-stress connection that avoids construction on 19th Street •15th Street south of Iris Avenue – provides continuity to 13th Street Greenstreet and complements new enhanced crosswalk at 15th Street and Iris Avenue •Juniper Avenue east of 26th Street – provides access to Elmer’s Twomile Path •Old Tale Road and Gapter Road – provides continuity in the low-stress bike network east of Foothills Parkway and access to US 36 regional bikeway 10.14.24 TAB Agenda 5 Snow & Ice Response Annual Update Page 7 of 11 Shoveled Areas Contractors clear select curb ramps, median refuge islands and bus stops throughout the city. The previous program cleared 156 of these locations, 41 of which were high-ridership bus stops. An additional 38 bus stops were cleared by Shovel-a-Stop volunteers, bringing the total number of cleared bus stops to 79. During community engagement, staff heard that focusing clearing services on the most used transit stops does not meet the needs of the disability community. Basing snow clearing on high - ridership stops may not cover where they live or need to go, which often results in them having to wait until the snow and ice have melted to be able to access the bus for travel. The 2024/2025 snow program will add five transit stops to serve people with disabilities. These stop locations are being determined in consultation with the National Federation for the Blind Boulder Valley Chapter and Center for People with Disabilities. In total, contractors will clear 198 locations in the 2024/2025 season. This includes clearing snow from curb ramps and/or median refuges at 158 locations (some locations may have multiple types of pedestrian infrastructure). It also includes 40 transit stops; all transit stops with ridership over 75 boardings/alightings per day (35 total) and the additional 5 stops added for people with disabilities. An additional 47 transit stops will be cleared this season by Shovel -a- Stop volunteers and 100 stops will be cleared by partners (RTD, CU Boulder), bringing the total number of transit stops cleared to 187 and the total number of shoveled areas to 345. The cleared transit stops make up 34% of all stops in the city. Table 5 outlines the shoveled areas included in the 2024/2025 snow program. Table 5: Number of shoveled areas in the 2024/2025 snow program Party Responsible for Clearing Number of transit stops Other shoveled area locations Total City Contractors 40 158 198 Shovel-a-Stop 47 -- 47 Partners (RTD, CU) 100 -- 100 Total 187 158 345 As individual floating bus stops, in addition to protected intersections, are constructed in the city, they will be added to the shoveled areas network without significant impact on budget and resources. In future years, as more significant numbers of floating bus stops and protected intersections are constructed, there will be additional budget needs to clear snow from them. The shoveled areas included in the 2024/2025 snow program highlight a reprioritization of existing resources. While the same general number of shoveled areas will be cleared as the previous program, the specific locations that will be cleared were selected because they better support multimodal travel and accessibility by enhancing access for members of the disability community, pedestrians, bicyclists, and transit users. 10.14.24 TAB Agenda 5 Snow & Ice Response Annual Update Page 8 of 11 An additional equity analysis was performed to ensure the recommended program continues to clear snow equitably at Boulder’s bus stops. The threshold for contracting snow clearing services under the previous program was 75 boarding/alightings per day. The recommended program reduces that threshold to 35 boarding/alightings per day to serve medium-ridership transit stops. While the 2024/2025 program is unable to incorporate this recommendation due to resource constraints, it will be incorporated in future years if additional resources become available and/or if additional volunteers join the Shovel-a-Stop program. Table 6 outlines the results of this additional equity analysis and includes transit stops cleared by all jurisdictions (RTD, CU Boulder). The recommended program will increase bus stop snow clearing service across all equity priority levels, with the highest increases in the highest-priority equity areas. Table 6: Percentage of bus stops cleared compared to the racial equity index Percentage of Stops Cleared under Previous Program Percentage of Stops Cleared Under Recommended Program Change Racial Equity Indices City Maintained All Jurisdictions City Maintained All Jurisdictions City Maintained All Jurisdictions 5 (Highest Priority) 17% 34% 31% 45% 14% increase 11% increase 4 21% 33% 36% 46% 15% increase 13% increase 3 24% 45% 41% 56% 16% increase 11% increase 2 12% 24% 15% 26% 3% increase 2% increase 1 (Lowest Priority) 33% 43% 38% 47% 5% increase 4% increase Multi-Use Paths All multi-use paths maintained by Transportation & Mobility will continue to be cleared. There are no changes in service for the 2024/2025 season. RECOMMENDATIONS FOR FUTURE SEASONS Staff identified additional program recommendations that expand the program to include clearing snow from additional streets, segments of the on-street bike network, and bus stops to improve access to multimodal travel options. These recommendations are detailed in the June 20, 2024 information item. These recommendations require an enhanced budget to operationalize and therefore are not included in the 2024/2025 operations plan. NEXT STEPS: Staff are developing materials to communicate program changes for the 2024/2025 winter season to the community. Questions for the Board: 1.Does the Board have any questions about the snow and ice response review recommendations that informed the 2024/2025 operations plan? 10.14.24 TAB Agenda 5 Snow & Ice Response Annual Update Page 9 of 11 ATTACHMENTS: Attachment A: Recommended storm size response framework graphic dated October 2024 10.14.24 TAB Agenda 5 Snow & Ice Response Annual Update Page 10 of 11 Response Time After Snowfall Stops Operations begin up to 24 hours before snow starts to fall. Areas maintained by the Transportation & Mobility Department Street Priorities 1st: Streets with high traffic, transit, emergency response and protected bike lanes 2nd: Crosstown bike routes, all remaining transit and emergency response routes, heavily-used alleys and steep-grade streets 3rd: Moderately-steep streets 1st Priority Bare pavement within12 hours 1st Priority Bare pavement within12 hours 2nd Priority Clear of loose snow within24 hours 1st Priority Bare pavement within12 hours 2nd Priority Clear of loose snow within36 hours 3rd Priority Clear of loose snow within48 hours Multi-Use Paths Bare pavement within12 hours Bare pavement within24 hours Bare pavement within48 hours Shoveled Areas* Select curb ramps, median islands and high- ridership bus stops Bare pavement within12 hours Bare pavement within24 hours Bare pavement within24 hours SMALL MEDIUM LARGE Up to 8 inches 0 to 3 inches 8+ inches *Sidewalks and roadside paths adjacent to residential and commercial properties are to be cleared of snow and ice (5’ minimum) no later than 24 hours after snowfall stops, per Boulder Revised Code, Section 8-2-13. 10/4/2024 Attachment A: Recommended storm size response framework graphic dated October 2024 10.14.24 TAB Agenda 5 Snow & Ice Response Annual Update Page 11 of 11