3-Attachment F-Transportation ComprehensivePlan 2016.pdf

1001 4th Avenue, Suite 4120 Seattle, WA 98154

Oak Harbor Transportation Plan

July 2016

Prepared by

Contents

Executive Summary

Chapter 1: Introduction

Purpose

Planning Requirements

GMA

Other Plans

Role of the Transportation Plan

Plan Organization

Chapter 2: Conditions and Trends

Existing Conditions

Land Uses and Key Destinations

Transportation Network Overview

Opportunities and Challenges

Network Connectivity

Regional Growth

Downtown Mobility

Safe Routes for All, Especially Pedestrians and Bicycles

Chapter 3: Community And Stakeholder Outreach

Stakeholder Interviews: Current System

Public Workshops & Survey: Future Needs

Survey Responses

Public Workshops

Chapter 4: Transportation Goals and Policies

Goal 1 – Safe for all Users

Goal 2 – Connected and Efficient

Goal 3 – Multimodal, Offering User Friendly Transportation Options

Goal 4 – Financially and Environmentally Sustainable

Goal 5 – Complementary of the City’s Land Use Vision and Other Adopted Plans

Goal 6 – Integrated with the Regional Tranportation Network to Address a Diverse Range of Transportation

Interests

Chapter 5: Transportation Vision

Introduction to the Layered Network

Modal Networks

Walking

Bicycling

Transit

Freight and Auto

Chapter 6: Capital Plans

Regional Collaboration

Roadway Facilities

Transit Facilities

Chapter 7: Implementing the Transportation Plan

Overview of Costs and Revenues

Funding Approach

Impact Fees

Replace Sidewalk Deferral Program

Transportation Benefit District

Grant Strategy

Setting Priorities

Appendix

Appendix A - LOS Reports and Collision Data

Appendix-B - Land Use and Travel Demand

Appendix-C - Travel Demand Model Documentation

Appendix-D - SR 20 Swantown Road to Barrington Drive Technical Report

Appendix E- 20 Year Project List

Appendix F- 20 Year Project List Cost Estimates

Figures

Figure 1. Regional Map Figure 2. Zoning Map Figure 3. Roadway Functional Classifications Figure 4. Existing Bicycle and Pedestrian Facilities Figure 5. Island Transit Routes Figure 6. Existing Truck Routes Figure 7. Intersection Count Locations Figure 8. Intersection Level of Service (2036) Figure 9. Collisions in Oak Harbor (2010-2014) Figure 10. Key Themes Identified in Stakeholder Interviews Figure 11. How Oak Harbor Residents Travel Today (Survey Results) Figure 12. Travel Modes that Need the Most Attention in the Future (Survey Results) Figure 13. Layered Network Figure 14. Pedestrian Priority Network Figure 15. Bicycle Priority Network Figure 16. Transit Priority Network Figure 17. Twenty Year Roadway Projects (20 Year Program, Tier 1 and Tier 2) Figure 18. Twenty Year Pedestrian Projects (Tier 1 and Tier 2) Figure 19. Twenty Year Bike Projects (Tier 1 and Tier 2)

EXECUTIVE SUMMARY

Oak Harbor, named for the Garry Oak trees which line its streets, is a city rich in history and natural beauty. Over the past century, Oak Harbor has grown into Whidbey Island’s largest incorporated community. This

Transportation Element aims to provide a 20-year vision for Oak Harbor’s transportation system, which respects the community’s history and character, supports anticipated growth in the region, and builds on Oak Harbor’s momentum as an attractive community in which to live, work, and play by supporting safe and comfortable travel by all modes through 2036.

The overall vision for Oak Harbor’s Transportation Plan is to provide a safe, balanced, and efficient multi-modal transportation system that is consistent with the City’s overall vision and adequately serves anticipated growth.

Guidance from City staff, the Planning Commission, City Council, stakeholders, and citizens helped identify several priorities:

• Improve safety for all road users in Oak Harbor through thoughtful planning and street designs that accommodate all modes

• Encourage the efficient movement of people and goods through an inter-connected transportation network that includes streets, sidewalks, bike paths, trails, public transit, and other facilities

• Ensure Oak Harbor’s Transportation Plan compliments the City’s land use vision and adopted plans, and

Island County’s transportation network

Oak Harbor, Washington

The Transportation Plan sets a framework for understanding, prioritizing, measuring, and creating a transportation network to help Oak Harbor achieve its vision. This document includes seven chapters:

• Chapter 1 – Introduction:

Describes the purpose of the Transportation Plan and the planning requirements it needs to address.

Also provides an overview of Oak Harbor’s position in the region and related planning efforts.

• Chapter 2 – Conditions and Trends:

Describes conditions for all travel modes in the existing transportation system. This chapter also identifies current challenges and trends that will affect Oak Harbor’s transportation network in the future.

• Chapter 3 – Community and Stakeholder Outreach:

Describes the public outreach process conducted as a part of the Transportation Plan Update, as well as the specific stakeholder feedback received from community interests.

• Chapter 4 – Transportation Goals and Policies:

Explains Oak Harbor’s vision for transportation and the goals and policies that serve as the basis for the

Transportation Element.

• Chapter 5 – Future Transportation Vision:

Introduces a layered network concept that forms the foundation of this plan to accommodate all modes of travel and create a complete transportation network in Oak Harbor. This section also details how to accommodate each travel mode and establishes the City’s level of service standards.

• Chapter 6 – Capital Plan:

Provides a long-term capital plan based on the community values expressed in the transportation goals and layered network.

• Chapter 7 – Implementing the Transportation Plan:

Evaluates Oak Harbor’s financial conditions over the next 20 years and provides guidance on plan implementation.

To serve as a useful document for the community, including both City staff and the general public, this

Transportation Plan focuses on the City’s vision and the projects and programs intended to meet that vision.

Technical and supporting information are available in the Appendix.

Pioneer Way, Oak Harbor

CHAPTER 1: INTRODUCTION

Oak Harbor, named for the Garry Oak trees which line its streets, is a city rich in history and natural beauty. Oak Harbor has continued to grow over the past century, aided by the construction of the

Deception Pass Bridge in 1936, and the completion of the Naval Air Station Whidbey Island in 1942.

Today, Oak Harbor is Whidbey Island’s largest incorporated community.

This Transportation Plan aims to provide a 20 year vision for Oak Harbor’s transportation system, which respects the community’s history and character, supports anticipated growth in the region, and builds on Oak Harbor’s momentum as an attractive community in which to live, work, and play by supporting safe and comfortable travel by all modes through 2036.

PURPOSE

The overall vision for Oak Harbor’s Transportation

Plan is to provide a safe, balanced, and efficient multi-modal transportation system that is consistent with the City’s overall vision and adequately serves anticipated growth. Guidance from City staff, the Planning Commission, stakeholders, and citizens helped identify several priorities:

• Improve safety for all road users in Oak

Harbor through thoughtful planning and street designs that accommodate all modes

• Encourage the efficient movement of people and goods through an inter-connected transportation network that includes streets, sidewalks, bike paths, public transit, and other transportation facilities

• Ensure Oak Harbor’s Transportation Plan compliments the City’s land use vision and adopted plans, and Island County’s transportation network

The Transportation Plan sets a framework for understanding, prioritizing, measuring, and creating a transportation network to help Oak Harbor achieve its vision.

PLANNING REQUIREMENTS

Oak Harbor’s regional location plays a role in the demands put on its transportation system. The City is located in North Whidbey Island, along the

Whidbey Scenic Isle Way Corridor, a state scenic byway that consists of State Route (SR) 525 and SR

20. The byway connects to important regional destinations in Island County, and two ferry terminals, Keystone and Clinton, which provide connections to Port Townsend and Mukilteo, and the greater Washington area. Given Oak Harbor’s position on Whidbey Island and status as an attractive summer tourist destination, the City is influenced by many regional travelers and trends.

The City must coordinate its transportation planning with a variety of jurisdictions and agencies, including

Island County, Island Transit, Naval Air Station

Whidbey, and the State of Washington.

Figure 1 shows the location of Oak Harbor in this regional setting.

Figure 1. Regional Map

GMA

The State’s Growth Management Act of 1990 requires communities to prepare a transportation plan that ties directly to the City’s land use decisions and financial planning. This Transportation Plan

Update fulfills the mandate.

Additionally, given the status of State Route 20 as a major transportation corridor that travels through

Oak Harbor, this plan aims to coordinate with the

Washington State Department of Transportation

(WSDOT) to ensure that these state facilities can adequately serve the region’s needs.

OTHER PLANS

As part of this planning process, several local, regional, and state plans and documents that influence transportation planning in the City of Oak

Harbor were reviewed. This section summarizes some of the key regional plans that were reviewed.

SKAGIT AND ISLAND COUNTIES METROPOLITAN

AND REGIONAL TRANSPORTATION PLAN

The Skagit and Island Counties Metropolitan &

Regional Transportation Plan (2010-2035), prepared by Skagit Council of Governments, lays out the long term goals for growth management, economic, and transportation issues.

The Plan identifies six key priorities for transportation in the region:

1. Economic Vitality – Promote and develop transportation systems that stimulate, support, and enhance the movement of people and goods.

2. Preservation – Maintain, preserve, and extend the life and utility of prior investments in transportation systems and services.

3. Safety – Provide for and improve the safety and security of transportation user and the transportation system.

4. Mobility – Improve the predictable movement of goods and people throughout the region.

5. Environment – Enhance regional quality of life through transportation investments that promote energy conservation, support healthy communities, and protect the environment.

6. Stewardship – Continuously improve the quality, effectiveness, and efficiency of the transportation system

ISLAND COUNTY TRANSPORTATION PLAN

Island County’s Transportation Element is intended to serve as guide for making transportation decisions to address both short and long term needs. The overarching goals of the plan are to provide a safe and integrated transportation system that maintains and preserves the existing system, while supporting the land use development and economic vitality. The projects outlined within the county’s 20-year project list focus on preserving and managing the existing transportation system and implementing safety projects, rather than adding more roadway capacity.

The Plan identifies six key goals for transportation in

Island County:

1. Provide a safe, comfortable and reliable transportation system that provides adequate mobility for people, goods and services, regardless of mode;

2. Support land use development and economic vitality by providing context-appropriate transportation infrastructure;

3. Minimize negative environmental impacts;

4. Preserve prior investments in the transportation system;

5. Promote physical activity by expanding options for active transportation modes;

6. Build strong relationships between Island

County and other agencies to engage in cooperative planning of common transportation improvements.

One key project identified in Island County’s project list is improvement of the Swantown Avenue/Heller

Street/Fireside Lane intersection. The considered improvements include a signal or a roundabout and either would provide for acceptable operations through 2036.

STATE ROUTE 20, SWANTOWN ROAD TO CABOT

DRIVE, CORRIDOR PRE-DESIGN ANALYSIS

In 2005, WSDOT partnered with the City of Oak

Harbor to review SR 20 corridor needs and develop a detailed plan that will facilitate design and construction of future highway improvements. The goal of the analysis was to determine how best to redesign the section of the corridor, between

Swantown Road to Cabot Drive, to improve levels of safety and mobility, while encouraging better access to land uses and improving the aesthetics of the corridor to match the city character.

Based on the traffic analysis of six key intersections within the project area, roundabouts were determined to be the best solution to improve safety and mobility along the corridor. In 2012, WSDOT released a briefing report and technical update to the 2005 plan, which further analyzed traffic within the study area and updated the costing estimates of the improvements recommended in the pre-design analysis. As of June, 2015, the project was funded by WSDOT as part of the Connecting

Washington Projects Highway Improvements

Program1. The project is scheduled for implementation between 2027 and 2029.

WHIDBEY SCENIC ISLE WAY CORRIDOR

MANAGEMENT PLAN

The Whidbey Scenic Isle Way Corridor Management

Plan (CMP) was created for the state scenic byway that consists of SR 525 and SR 20 on Whidbey

Island. The corridor, which spans from Deception

Pass to the Clinton Ferry Terminal, is characterized as a “ribbon of commerce and connectivity for island communities”. The vision of the Whidbey Scenic Isle

Way is to enhance visitors’ experience and preserve the quality of life enjoyed by island residents.

The CMP serves as a tool that provides recommendations for specific strategies and actions that improve, enhance, and sustain the corridor’s unique intrinsic qualities and the many enjoyable experiences it offers. In regards to transportation, the plan outline several goals such as promoting the non-driving experience, improving the aesthetics of the transit system and park-and-ride lots, expanding the multiuse trail system, and providing safe and convenient crossing opportunities for pedestrians.

ROLE OF THE TRANSPORTATION PLAN

The Transportation Plan provides a framework that outlines the policies, projects, and programs necessary to implement the City’s vision of future mobility in and throughout the City of Oak Harbor.

The Transportation Plan also describes the financial environment for transportation investments out to

2036.

In essence, the Transportation Plan informs the development of the Capital Improvement Program by identifying the types of projects the City should

1 Leap Transportation Document 2015 NL-1 undertake to support future travel trends. The plan also evaluates how these projects coincide with the community’s values and financial resources.

Goldie Road/ NE Midway Boulevard, Oak Harbor

Island County Harbor Station, Oak Harbor

PLAN ORGANIZATION

This Transportation Plan includes six chapters in addition to the Introduction (Chapter 1):

• Chapter 2 – Conditions and Trends:

Describes conditions for all travel modes in the existing transportation system. This chapter also identifies current challenges and trends that will affect Oak Harbor’s transportation network in the future.

• Chapter 3 – Community and Stakeholder

Outreach: Describes the public outreach process conducted, as well as the specific feedback received from stakeholder members.

• Chapter 4 – Transportation Goals and

Policies: Explains Oak Harbor’s vision for transportation as well as the goals and policies that form the basis for the

Transportation Element.

• Chapter 5 – Future Transportation Vision:

Introduces the layered network concept that forms the foundation of this plan to accommodate all modes of travel and create a complete transportation network in Oak Harbor. This section also details how to accommodate each travel mode and establishes the City’s transportation level of service standards.

• Chapter 6 – Capital Plan:

Provides the 20 year transportation investment list which reflects on the community values expressed in the transportation goals and layered network.

• Chapter 7 – Implementing the

Transportation Plan:

Evaluates Oak Harbor’s financial conditions over the next 20 years and provides guidance on plan implementation.

Old Town District, Oak Harbor

Public Meeting (February 2015), Oak Harbor

CHAPTER 2: CONDITIONS AND TRENDS

EXISTING CONDITIONS

This chapter describes how people use Oak Harbor’s transportation network today, as well as how that may change over the next 2o years as the region grows. The way people travel is greatly influenced by the built environment, which includes land use and travel corridors, as well as the key destinations where people live, work, play, shop, and recreate.

This chapter also describes trends in how people are traveling based on anticipated development patterns and travel mode data.

LAND USES AND KEY DESTINATIONS

The places where people live, work, and play are impacted by how a city and surrounding communities guide where development occurs. The

Land Use Element of this Comprehensive Plan provides the guidance mentioned here. One way a city can influence this is through zoning. Zoning allows a city to encourage specific development, such as homes and businesses, to occur in targeted areas of the city. It is important to consider land use when planning for transportation because it provides insight into areas where more people may concentrate their travel.

The main commercial areas in Oak Harbor, where people tend to shop, are located downtown and along State Route (SR) 20; these areas are zoned

Central Business District (CBD) and high intensity commercial as shown in Figure 2.

Oak Harbor’s Old Town District (downtown) features older buildings that are home to a variety of commercial uses including office and retail, as well as restaurants. The area along SR 20 is characterized by auto-oriented commercial development that features larger scale buildings and parking lots.

Other areas of commercial and industrial development are located in the northern portions of

Oak Harbor, and military land uses abut the eastern and northern city limits. Much of the remaining City area is zoned for single-family residential.

It is important to consider that areas of commercial, industrial, and dense residential land use tend to have more concentrated trips and can be supportive of alternative modes of travel such as transit, whereas areas of low density residential tend to have dispersed trip patterns more conducive to trips made by personal vehicle.

OAK HARBOR’S OLD TOWN DISTRICT

Oak Harbor’s Old Town District is characterized as the historical city center. It is a major trip generator for all modes. It features a mix of commercial, residential, and civic destinations such as City Hall and the public library.

Old Town District, Oak Harbor

ISLAND TRANSIT’S HARBOR STATION

Island Transit’s Harbor Station serves a major transit hub and transfer center in Island County. Located on

Bayshore Drive, the Harbor Station is served by nine transit routes, and connects to destinations as far as the Anacortes Ferry Terminal and the Clinton Ferry

Terminal. The Harbor Station is well connected to the Old Town District, and provides access to a nearby surface lot for passengers who access transit by car. There is also bicycle and pedestrian amenities at the station area, including shelters, bathrooms, benches, and bike parking.

OAK HARBOR’S WATERFRONT

Located on the south side of Oak Harbor’s Old Town

District, the Oak Harbor Waterfront provides access to parks, trails, and the Marina. Many residents and visitors alike enjoy the waterfront area and travel and recreate on Oak Harbor’s Waterfront Trail, which spans the entire City waterfront. The

Waterfront Trail serves as a major nonmotorized route for residents and commuters. It connects trail users to destinations in Old Town such as shops, restaurants, and the Skagit Valley College. The trail also provides important connections for marina visitors and residents on liveaboards in the Oak

Harbor Marina.

Figure 2. Zoning Map

NAVAL AIR STATION WHIDBEY

The Naval Air Station (NAS) Whidbey is located on two pieces of land near Oak Harbor. The primary section of the base, Ault Field, is located about three miles north of Oak Harbor. Ault Field features the main airfield, administrative and industrial buildings, a hospital, a variety of housing units, and several recreational areas including an 18-hole golf course, totaling approximately 4,250 acres in size.

The secondary section of the base, Seaplane Base, is located just east of Oak Harbor’s Old Town District.

The Seaplane Base encompasses approximately

2,820 acres. About twenty percent of this land area is developed, primarily with single family housing and with the Navy Exchange, Commissary, and a gas station. The remainder of the site is covered by forest, wetlands, grasslands, and beaches2.

NAS Whidbey’s personnel contribute to a significant amount of traffic on roadways leading to Ault Field and the Seaplane Base. Traffic near the bases becomes backed up during shift changes, as personnel enter/exit the base at Goldie Road and

West Ault Field Road; Langley Boulevard and West

Ault Field Road; and West Crescent Harbor Road and Torpedo Road.

Although the majority of personnel commute by private vehicle, many young personnel do not own a vehicle, and rely heavily on Island Transit, walking, and/or biking for their travel. The growth in population is expected to increase the number of young personnel, who typically lack access to a personal vehicle and are dependent on other modes.

Today, approximately 7,000 personnel are stationed at NAS Whidbey. By 2020, the active duty population is projected to reach 8,0003. Anticipated growth and development near NAS Whidbey bases may necessitate roadway and operation improvements.

SCHOOLS

The Oak Harbor School District operates neighborhood schools that serve the City and surrounding areas, including:

• Broad View Elementary School

2 City of Oak Harbor. 2015. “Comprehensive Plan”.

http://www.oakharbor.org/page.cfm?pageId=59

• Crescent Harbor Elementary School

• Hillcrest Elementary School

• Oak Harbor Elementary School

• Olympic View Elementary School

• North Whidbey Middle School

• Oak Harbor Middle School

• Oak Harbor High School

In addition, there are several private schools located within Oak Harbor including: Lighthouse Christian

Academy, Oak Harbor Christian School, Montessori

Der Kinderhuis, Oak Harbor Seventh Day Adventist

Elementary School, and Oak Harbor Bible Baptist

Christian School.

The City of Oak Harbor, the Oak Harbor School

District, and neighborhood groups have made a commitment to provide safe access to the City’s schools through the State Safe Routes to School

(SRTS) program. The Oak Harbor SRTS program has been successful in securing grant funding for a variety of programs that support a safer transportation network near schools.

In 2009, the Oak Harbor School District was awarded a SRTS grant of approximately $360,000 to improve pedestrian access at eight heavily used roadway crossings by school children. The project was implemented by the Washington State

Department of Transportation and the City of Oak

Harbor, and completed in the summer of 2012.

Crossing near Olympic View Elementary School, Oak Harbor

Growth within the City of Oak Harbor will necessitate the need for new schools. Naval Air

3 Whidbey News-Times. 2015. “Navy ‘setting the foundation for the next 30 years” http://www.whidbeynewstimes.com/news/304773681.html

Station Whidbey alone is expected to add another

750 elementary students by 20194. Given this growth, the Oak Harbor School Board has approved a plan to create two “hybrid schools”. Instead of two middle schools for grades 6-8, there will be one school for grades 5-6 and one school for grades 7-8.

This could create challenges for school children who may need to cross SR 20 more often, given that their home school will not necessarily be the one closest to them.

Olympic View Elementary, Oak Harbor

SKAGIT VALLEY COLLEGE

A branch of Skagit Valley College is located in Oak

Harbor at the east end of Pioneer Way.

Approximately 1,400 students enroll on the campus annually5. The college is served by three Island

Transit routes (3, 10, and 12), however the majority of students access the campus by car.

PARKS AND RECREATION AREAS

The City’s park system consists of more than 30 parks on over 150 acres of land. The parks feature walking trails, picnic areas, ball fields, playgrounds, a marina, senior center, recreational vehicle park, and access to public shorelines6.

In addition to schools and parks, retirement communities are major generators of non-motorized trips. Many residents of retirement communities no longer drive their own vehicles, so they are dependent on privately-operated shuttles, public transportation, walking, biking, and motorized scooters to get to doctors’ appointments, 4 Oak Harbor Schools Going “Hybrid” to Save Space. 2016.

http://www.king5.com/story/news/local/2016/03/07/oak-harbor-schools-going-hybrid-save-space/81460794/ residences of family and friends, and shopping/dining destinations. There are five retirement communities in Oak Harbor, located in a north-south corridor roughly centered on SR 20.

Flintstone Park, Oak Harbor

TRANSPORTATION NETWORK OVERVIEW

Oak Harbor’s transportation network accommodates many modes of travel, including walking, bicycling, public transit, and driving.

Vehicular travel is still the primary choice for most travelers in and around Oak Harbor (see Chapter 3).

City streets form the foundation of the transportation framework with roadways shaping how residents and visitors experience Oak Harbor.

The main travel corridors in Oak Harbor are mostly roadways with sidewalks but also include trails and bus routes. The Old Town District has a relatively well-connected street grid, while the remaining areas of the city are characterized by larger blocks and curvilinear streets, which can make direct connections difficult.

This plan classifies Oak Harbor’s roadways into principal arterials, collectors, and local streets, as shown in Table 1 displayed Figure 3. Examples of each roadway type and the intended uses served are also described below.

5 Skagit Valley College. 2010. “2009/2010 Annual Enrollment

Report.” https://www.skagit.edu/imageuploads/file2882.pdf 6 Parks, Recreation, and Open Space Plan. 2009.

Table 1. Classifications of Roadway

Roadway

Type

Description / Purpose Example Photo

Principal

Arterial

Principal arterials are Oak Harbor’s highest functional classification and tend to carry the highest volumes.

Major arterials serve regional through trips and connect Oak Harbor with the rest of the region.

SR 20

Swantown Avenue

Minor

Arterial

Minor arterials are designed for higher volumes, but tend not to be major regional travel ways. Minor arterial streets provide inter-neighborhood connections.

Whidbey Avenue

NE Regatta Drive

Collectors Collectors distribute trips between local streets and arterials and serve as transition roadways to or from commercial and residential areas.

Collectors have lower volumes than arterials, and can include select traffic elements to balance experience for all modes.

NE 7th Avenue

SW Barrington Drive

Local

Streets

Local streets are the lowest functional classification, providing circulation and access within residential neighborhoods.

SE 6th Avenue

NW Cathlamet Drive

Figure 3. Roadway Functional Classifications

PEDESTRIAN AND BICYCLE NETWORK

Residents and visitors in Oak Harbor walk and bike as a part of their daily travel for many reasons.

Children attending school, commuters taking the bus or connecting with a carpool to get to work and senior citizens making midday trips, all require safe amenities. Over the past five years, Oak Harbor has made great strides in creating a more bicycle friendly and walkable community.

In 2012, Oak Harbor completed the Pioneer Way improvements as part of a downtown revitalization project. The reconstruction project converted

Pioneer Way from a two-way to a one-way street and added pedestrian-friendly streetscape enhancements including wider sidewalks, landscape planters, and angled on-street parking.

South of Pioneer Way is Oak Harbor’s waterfront trail. Oak Harbor’s waterfront trail has grown into a popular pedestrian and recreational facility that spans the entire City waterfront. It connects to some of Oak Harbor’s busiest parks and key destinations such as downtown, Skagit Valley College, the public library, and Oak Harbor’s Marina.

Oak Harbor’s bicycle route network is supported by a network of low speed and low volume residential streets, which offer the basic components of a safe bicycling environment. The City is working to make

Oak Harbor more bicycle friendly by investing in bike facilities such as bike lanes and multiuse trails that support local and regional connections.

Locally, Oak Harbor has improved the bike network through projects such as the Freund's Marsh Trail from Scenic Heights Road to Oak Harbor’s

Windjammer Park. Regionally, Oak Harbor has worked with Island County, through planning efforts such as the Island County Non-Motorized

Transportation Plan, to further develop Oak

Harbor’s bicycle network; identify short-term, mid-term, and long-term priority projects; and support a regional trail system that connects Oak Harbor with

Deception Pass, Joseph Whidbey State Park, Dugualla State Park, and a number of additional parks and beach access areas.

Figure 4 shows the locations of pedestrian facilities and bike facilities in Oak Harbor.

Pioneer Way Improvement Project, Oak Harbor

Pioneer Way Improvement Project, Oak Harbor

Figure 4. Existing Bicycle and Pedestrian Facilities

TRANSIT NETWORK

Island Transit provides local bus, express bus, and para-transit service with connections in Oak Harbor.

The majority of transit riders access this transit service by walking or driving to a parking lot or on-street parking and then walking to connect to transit. Six Island Transit routes serve Oak Harbor with frequencies ranging from 20 – 60 minutes.

Service is offered throughout all of Whidbey Island’s eight park-and-ride lots, which are located along the state scenic byway that consists of the SR 525 and

SR 20.

Island Transit connects to each of the ferry terminals on Whidbey Island, and many communities along the scenic byway. In addition, several transit agencies connect to Oak Harbor’s transit network including Sound Transit, Skagit Transit, Community

Transit, Everett Transit, Jefferson Transit and

Whatcom Transit. Island Transit also offers a very successful vanpool and rideshare program

Figure 5 shows existing transit routes in the City’s transit network.

Island Transit’s Harbor Station, located in Oak Harbor’s Old Town District

Figure 5. Island Transit Routes

FREIGHT NETWORK

Freight and goods movement is a vital and often underappreciated element of the transportation network. Everyone is directly impacted by how goods are delivered to ports, distribution centers, stores and their homes. The City of Oak Harbor is a key regional player in the movement of goods with major highway and arterial connections to distribution facilities. Further, NAS Whidbey’s Ault

Field and Seaplane Base rely heavily on the efficient movement of goods.

SR 20, from Deception Pass Bridge through the City of Oak Harbor, is the most heavily-traveled roadway facility in Island County, with approximately 3.6 million tons of freight carried annually along the corridor. In addition, local city arterials such as

Regatta Drive, Midway Boulevard, Oak Harbor

Street, Whidbey Avenue, Swantown Avenue, and

Heller Street serve as key freight arterials that provide connections to regional facilities.

The WSDOT freight corridors within Oak Harbor as well as additional truck routes designated by the

City are shown in Figure 6.

State Route 20, Oak Harbor

Figure 6. Existing Truck Routes

AUTO NETWORK

With many Oak Harbor residents, employees, and residents relying on vehicles as their primary mode of transportation, the City’s street network is critical to the transportation system. Growth within the region has increased traffic congestion along some of Oak Harbor’s roadways.

To understand roadway operations in the City today, 31 intersections in the City of Oak Harbor were evaluated to identify the need for future roadway improvements. The study intersections were analyzed within the area bounded by NE 16th

Avenue (north), Regatta Drive (east), Swantown

Avenue (west), and Pioneer Way (south), as seen in

Figure 7. Intersections operations were evaluated and assigned a level of service (LOS) grade based on their operations in terms of vehicle delay.

Table 2 describes the Level of Service definitions laid out in Chapter 16 of the Highway Capacity

Manual (HCM) (Transportation Research Board, 2010), which is a standard methodology for measuring the performance of intersections and corridors7.

Table 2: Level of Service Definitions

Level of

Service

Description

A Free-flowing conditions.

B Stable operating conditions.

C Stable operating conditions, but individual motorists are affected by the interaction with other motorists.

D High density of motorists, but stable flow.

E Near-capacity operations, with significant delay and low speeds.

F Over capacity, with delays.

The City’s existing level of service policy sets the following standards for its roadways:

• LOS D or better for intersections on City streets within the City UGA

• LOS E for intersections along SR 20 within the City UGA

7 In a few locations, HCM 2000 was used due to limitations in applying the HCM 2010 methodology.

Of the 31 intersections analyzed, all intersections operate at LOS D or better today. These intersections are generally located along key north-south arterials. Given the land use growth anticipated in Island County between now and 2036, some of the intersections that are currently meeting the City’s LOS D standard would degrade to LOS E or F by 2036 without the infrastructure improvements identified in this plan. The locations of these intersections are shown in Figure 8.

Detailed reports of LOS are available in Appendix A.

Whidbey Avenue, Oak Harbor

West Pioneer Way, Oak Harbor

Figure 7. Intersection Count Locations

Figure 8. Intersection Level of Service (2036)

OPPORTUNITIES AND CHALLENGES

The City of Oak Harbor has several important challenges to face as it prepares for future growth and development. Motor vehicle travel currently dominates the City’s transportation network. Oak

Harbor is working to create a more balanced network, and addressing the transportation challenges below will be a key to the City’s success.

NETWORK CONNECTIVITY

Barriers to Mobility

The City’s roadway network creates several challenges for local traffic. Few east-west and north-south arterials serve the entire City. Further, poor connections between local streets (e.g. dead ends, cul-de-sacs, misaligned roads, etc.) encourage the use of SR 20 for local trips. This contributes to congestion on SR 20, especially during peak periods.

In addition, SR 20 bisects the center of Oak Harbor creating barriers for walking and biking.

Pedestrian and Bicycle Infrastructure

Sidewalks are generally available along all arterials, streets within the Old Town District, and in newer subdivisions. However, many older residential areas, have incomplete or poorly maintained sidewalks.

This limits the mobility of pedestrians between major destinations. The City’s existing bicycle network is limited to a small number of trails and on-street facilities. These gaps in infrastructure, along with a topography that includes many hills, create challenges for bicycle travel within the City.

Transit Access and Availability

With no high capacity local transit system, bus service in Oak Harbor must be reliable and provide significant mobility. The bus routes that currently serve Oak Harbor operate on infrequent service schedules. This creates challenges for transit-dependent riders for accessing their needs, and it forces many potential transit users to drive instead.

The City should look for ways to encourage enhanced transit service from Island Transit through investment in transit-supportive amenities to help residents, employees, and visitors access and use transit.

REGIONAL GROWTH

Regional development outside of the city itself will play a major role in the growing demands on Oak

Harbor’s transportation network by 2036. Island

County is expected to continue adding residents and jobs during this time period. One major employer that affects Oak Harbor’s transportation system most is the Naval Air Station, which expects a surge in employment in the next 2-3 years.

This growth will add traffic to Oak Harbor’s streets, as well as SR 20, which has an impact on the quality of life for Oak Harbor residents. To maintain and improve mobility throughout the city, including across SR 20, as well as connectivity to the rest of the region, the City must coordinate with regional partners. Continued coordination with regional entities such as WSDOT, Island Transit, and NAS

Whidbey will be critical to ensure a complete and connected transportation system that serves Oak

Harbor residents, employees, and visitors moving forward.

DOWNTOWN MOBILITY

The City is working to develop safer connections to the Old Town District as part of this Transportation

Plan update. By improving bicycle and pedestrian amenities, by adding flashing beacons at crosswalks and bike lanes along Pioneer Way, the City will create a more accessible and attractive downtown.

This will enhance the appeal of spending time in the downtown area.

SAFE ROUTES FOR ALL, ESPECIALLY

PEDESTRIANS AND BICYCLES

Since 2010, Oak Harbor has seen 150 to 200 traffic collisions per year. Figure 9 displays traffic crashes around the City over a five-year period spanning

2010-2014. In an effort to increase pedestrian safety, Oak Harbor has improved pedestrian facilities in the downtown. Sidewalk and crosswalk improvements have created a more welcoming environment for pedestrians moving around downtown, but busy corridors, such as Pioneer Way, SR 20, and Regatta Drive, have still seen a significant number of collisions involving pedestrians and bicyclists.

Figure 9. Collisions in Oak Harbor (2010-2014)

Oak Harbor Travel Demand Forecasting

The Growth Management Act (GMA) requires that the Transportation Element support the land uses envisioned in the Comprehensive Plan. Thus, an important component of this plan was forecasting how the future land uses envisioned in the City, as well as regional growth, would influence demand on Oak

Harbor’s transportation network. A description of the travel demand modeling process is provided below with more detail about land use assumptions in Appendix C.

The Tool. As a part of previous planning efforts, the Skagit Council of Governments created a travel model with the Visum software package. This model forecasted traffic volumes during the evening commute hour (4-6pm) along Oak Harbor’s key streets and intersections. This tool provides a reasonable foundation for developing year 2036 forecasts, as the underlying land use assumptions have been updated to match the land use forecasts for the current Comprehensive Plan.

• Estimate Land Use Growth in the City. As a part of the Comprehensive Plan update, the City is planning for expected growth in housing units and employment over the next 20 years through

2036. Based on growth estimates from Island County and review by City staff, Oak Harbor is preparing for 1,600 new housing units and 2,000-3,000 new workers by 2036. The City then allocates the growth throughout Oak Harbor based on adopted zoning, observed development patterns, and other city policies.

• Capture Regional Growth Patterns. Other communities throughout the region are going through this very same process. Since travel does not stop at a jurisdiction’s borders, it is important to capture how regional growth could influence travel patterns on Oak Harbor’s streets.

• Translating Land Uses into Trips. The next step is evaluating how the City and regional growth assumptions described above translate into walking, biking, transit, and auto trips. The travel model represents the number of housing units and employees in spatial units called traffic analysis zones (TAZs). TAZs can be as small as a few street blocks to as large as an entire neighborhood. They provide a simplified means to represent trip making rather than modeling individual parcels. The travel model estimates trips generated from each TAZ (both inside and outside of the City) using established relationships between different land use types with trip making. These trips are then assigned onto the roadway network to estimate how much traffic would be on each street during the evening commute hour.

CHAPTER 3: COMMUNITY AND STAKEHOLDER OUTREACH

Development of this Transportation Plan included extensive community outreach through workshops, committee meetings, and a public survey. The City held open public workshops in November 2015 and

February 2016 to gain insight on how Oak Harbor citizens would like to prioritize transportation for the next 20 years. The City also provided opportunities for public input at many community events including Oak Harbor’s Farmers Market and

Driftwood Day. In addition, the consultant team met frequently with City staff members, the Planning

Commission, and City Council throughout the course of the planning effort.

STAKEHOLDER INTERVIEWS: CURRENT

SYSTEM

Stakeholder interviews were conducted to discuss different agencies’ perspectives on the

Transportation Plan update, and to identify opportunities and challenges within Oak Harbor’s transportation network. Over the course of the project, the project team met with the following stakeholders:

• Island County

• Island Transit

• Whidbey Bicycle Club

• Oak Harbor Police Department

• Oak Harbor Fire Department

• Naval Air Station (NAS) Whidbey

• Oak Harbor School District

• Washington Department of Transportation

• Oak Harbor Parks and Recreation Department

A variety of responses relating to transportation were provided and feedback is summarized in

Table 3 and displayed in Figure 10.

Public Workshop, February 3rd 2016

Public Workshop, February 3rd 2016

Table 3. Key Themes from Stakeholder Meetings

Efficient and Connected

Network

Safe Corridors Downtown Traffic NAS-Whidbey

• Missing bicycle and pedestrian links on Fort

Nugent Road, Whidbey

Avenue, and other important nonmotorized activity corridors

• Poor connections between local streets (e.g. dead ends, cul-de-sacs, misaligned roads, etc.) contribute to local traffic on SR 20

• Traffic calming needed on

Whidbey Avenue and other high priority pedestrian corridors

• Collision hotspots:

Whidbey Avenue

Corridor; Crescent Harbor

Road and Regatta Drive;

SR 20 and Midway

Boulevard, Goldie Road, Barrington Drive

• Traffic backups along

SR 20 corridor between

Cabot Drive and

Swanton Road

• Traffic congestion on

SE Pioneer Way

• Challenges associated with connecting the network via Bayshore

Drive

• Expected increase in local traffic due to future growth of

2,000-3,000 jobs

• Difficult to serve Ault

Field and Seaplane

Base by transit

• Traffic backups during shift changes and gate closures

Figure 10. Key Themes Identified in Stakeholder Interviews

PUBLIC WORKSHOPS & SURVEY: FUTURE

NEEDS

Community input regarding the future of transportation in Oak Harbor was collected at two public workshops and through a survey available online and at community workshops and events.

Over 100 responses were collected from the survey alone.

SURVEY RESPONSES

Survey respondents were asked how they travel in the City; which modes they would like to see the

City focus their efforts on; and how they envision

Oak Harbor’s future transportation system. The comments provided through the online survey and public workshops were compiled, reviewed, and analyzed. Overall, respondents showed a desire for multimodal investments to reduce congestion, enhance safety, and improve network connectivity.

The popularity of each mode of travel is shown in

Figure 11. The modes that need the most attention in the future are identified in Figure 12.

PUBLIC WORKSHOPS

The purpose of the November 10th workshop was to share with the public why we are updating the plan and discuss Oak Harbor’s existing transportation network and residents’ travel behavior. The

November workshop also provided an opportunity to gain public input on how residents envision Oak

Harbor’s future network and to identify areas of the

City in need of transportation investments to improve safety and mobility.

The purpose of the February 3rd workshop was to share with the public how public input was incorporated into the draft plan from the November workshop, including drafting a 20 - year project list based on the public’s shared thoughts on transportation priorities in Oak Harbor. At the workshop participants were given the opportunity to provide feedback on the proposed project list. To facilitate this process, each attendee of the workshop was given ten dots to cast their vote for projects that they felt were most needed.

The top five projects identified as part of this process were:

1. NE 7th Avenue Roadway Reconstruction and Pedestrian Improvements

2. Midway Boulevard Road Diet

3. Fort Nugent Bike Lane

4. Midway Boulevard / Goldie Road Bike Lane

5. SW Heller Roadway Improvements

Figure 11. How Oak Harbor Residents Travel Today

(Survey Results)

Figure 12. Travel Modes that Need the Most Attention in the Future (Survey Results)

Personal vehicle, alone

36%

Personal vehicle, with one or more people

23%

Public transit

(bus) 6%

Vanpool

1%

Bike

10%

Walk

22%

Other

5%

20 20

6 6

12 12

Bike Walk Public transit

(bus)

Personal vehicle, alone

Personal vehicle, with one or more people

Vanpool

Most Important 2nd Most Important 3rd Most Important

CHAPTER 4: TRANSPORTATION GOALS AND POLICIES

Oak Harbor has established six goals to accomplish its overall vision for transportation in the future. The goals establish overarching priorities that serve the vision of this Transportation Element while policies lay out specific actions. Together, the goals and policies lay the foundation for the remainder of this

Plan, including the proposed project list and ongoing implementation of the Plan. The consolidated set of goals and policies is included in this chapter.

GOAL 1 – SAFE FOR ALL USERS

1a. Strive to reduce traffic deaths and serious injuries in Oak Harbor to zero by 2030 as part of the State of Washington’s traffic safety efforts using education, enforcement, engineering, emergency medical services, and leadership / policy.

1b. Prioritize locations with a history of collisions or other identified safety issues when selecting transportation projects to implement.

1c. Keep roadways operating in safe condition by taking steps to secure roadway funding from a variety of sources to maintain, rehabilitate, or replace roadways.

1d. Design street improvements to enhance the safe and efficient movement of pedestrians and bicycle traffic. Incorporate traffic calming measures where appropriate.

1e. Design new streets and, when the opportunity arises, redesign streets in order to reduce lane widths to accommodate vehicles that use the street most frequently;

rather than large vehicles that may use the street only occasionally.

1f. Coordinate with emergency response services to ensure adequate and timely access as the city builds out the transportation network.

GOAL 2 – CONNECTED AND EFFICIENT

2a. Encourage the efficient movement of people and goods through an effective and inter-connected transportation network that includes: collector and arterial streets, trails, bike paths, public transit and other transportation facilities and is in balance with the land use and transportation requirements in the City of Oak Harbor.

2b. Provide for the efficient movement of people and goods on arterial streets through a balanced approach that only increases the automobile capacity of roadways when necessary.

2c. Work toward development of a multi-modal transportation system that achieves the following level of service metrics:

i. Vehicular LOS Maintain standards that promote growth where appropriate while preserving and maintaining the existing transportation system. Set LOS

D as the standard for PM peak hour for allowable PM peak hour delay at intersections, with the exception of intersections along SR 20 within the City

UGA, where LOS E operations will be considered acceptable during the PM peak period.

ii. Pedestrian LOS- Provide sidewalks, trails, and/or separated paths, as defined in Pedestrian Priority Network.

iii. Bicycle LOS- Provide bike lanes, separated paths, protected facilities, and bicycle boulevards, as defined in

Bicycle Priority Network.

iv. Transit LOS- Partner with Island Transit and other transit operators to provide transit stop amenities and safe access to transit at major transit stops and park and ride facilities.

2d. Maintain concurrency between land development and installation of required transportation facilities, consistent with the

Capital Improvement Plan.

2e. Facilitate efficient connections by encouraging street system design in a rectangular grid pattern with smaller block sizes, frequent interconnections, and clear wayfinding; strongly discourage cul-de-sacs or dead end streets.

2f. Coordinate all modes of transportation to enhance effectiveness and efficiency.

Promote a transportation network, including non-motorized modes, that allows for convenient access to major destinations within the City of Oak Harbor.

GOAL 3 – MULTIMODAL, OFFERING USER

FRIENDLY TRANSPORTATION OPTIONS

3a. Coordinate with private transportation providers to boost the effectiveness of public transportation providers.

3b. Coordinate with Island Transit to identify locations for future transit infrastructure and improvements that will more effectively serve the developing areas of Oak Harbor, such as bus stops, bus pullouts, bus stop shelters, and park-and-ride facilities.

3c. Provide incentives for the use of car and van…