5-Attachment G-Active Transportation Plan 2024.pdf

OAK HARBOR

ACTIVE TRANSPORTATION PLAN

ADOPTED APRIL 16th, 2024

Acknowledgements

TABLE OF CONTENTS

Introduction ______________________________________________________________________________ 4

Existing Conditions _______________________________________________________________________ 7

Plan Development ______________________________________________________________________ 13

Projects _______________________________________________________________________________ 26

Policies & Programs ____________________________________________________________________ 41

Implementation Strategy _________________________________________________________________ 49

Appendix A: Full Prioritized Project List _____________________________________________________ 56

Appendix B: Engagement Summary Report _________________________________________________ 61

Appendix C: Pedestrian and Bicycle Network Analysis Technical Approach ______________________ 74

Appendix D: Definition of Facility types _____________________________________________________ 83

Appendix E: WSDOT Input and Proposal for State Route 20 ___________________________________ 85

Appendix F: Conceptual Designs & Cost Estimates ___________________________________________ 94 file://EgnyteDrive/Projects/70000/00SEA.00121_P_Oak%20Harbor%20ATP/DELIVERABLES/2024-03-04%20Oak%20Harbor%20ATP_Final%20Draft.docx#_Toc160533308 file://EgnyteDrive/Projects/70000/00SEA.00121_P_Oak%20Harbor%20ATP/DELIVERABLES/2024-03-04%20Oak%20Harbor%20ATP_Final%20Draft.docx#_Toc160533311 file://EgnyteDrive/Projects/70000/00SEA.00121_P_Oak%20Harbor%20ATP/DELIVERABLES/2024-03-04%20Oak%20Harbor%20ATP_Final%20Draft.docx#_Toc160533313 file://EgnyteDrive/Projects/70000/00SEA.00121_P_Oak%20Harbor%20ATP/DELIVERABLES/2024-03-04%20Oak%20Harbor%20ATP_Final%20Draft.docx#_Toc160533319 file://EgnyteDrive/Projects/70000/00SEA.00121_P_Oak%20Harbor%20ATP/DELIVERABLES/2024-03-04%20Oak%20Harbor%20ATP_Final%20Draft.docx#_Toc160533323 file://EgnyteDrive/Projects/70000/00SEA.00121_P_Oak%20Harbor%20ATP/DELIVERABLES/2024-03-04%20Oak%20Harbor%20ATP_Final%20Draft.docx#_Toc160533327 file://EgnyteDrive/Projects/70000/00SEA.00121_P_Oak%20Harbor%20ATP/DELIVERABLES/2024-03-04%20Oak%20Harbor%20ATP_Final%20Draft.docx#_Toc160533332 file://EgnyteDrive/Projects/70000/00SEA.00121_P_Oak%20Harbor%20ATP/DELIVERABLES/2024-03-04%20Oak%20Harbor%20ATP_Final%20Draft.docx#_Toc160533335 file://EgnyteDrive/Projects/70000/00SEA.00121_P_Oak%20Harbor%20ATP/DELIVERABLES/2024-03-04%20Oak%20Harbor%20ATP_Final%20Draft.docx#_Toc160533337 file://EgnyteDrive/Projects/70000/00SEA.00121_P_Oak%20Harbor%20ATP/DELIVERABLES/2024-03-04%20Oak%20Harbor%20ATP_Final%20Draft.docx#_Toc160533339 file://EgnyteDrive/Projects/70000/00SEA.00121_P_Oak%20Harbor%20ATP/DELIVERABLES/2024-03-04%20Oak%20Harbor%20ATP_Final%20Draft.docx#_Toc160533340 file://EgnyteDrive/Projects/70000/00SEA.00121_P_Oak%20Harbor%20ATP/DELIVERABLES/2024-03-04%20Oak%20Harbor%20ATP_Final%20Draft.docx#_Toc160533341

Acknowledgements

ACKNOWLEDGEMENTS

We would like to thank all the Steering Committee members, focus group participants, City Council members, Planning Commission members, and residents of Oak Harbor who helped guide and support the development of this Plan.

Executive Summary

EXECUTIVE SUMMARY

The Oak Harbor Active Transportation Plan

(ATP) is a comprehensive strategy to enhance quality of life, increase sustainability, support local economies, and improve mobility and safety. Active transportation includes walking, biking, and rolling, which includes skateboarding and using mobility devices like power wheelchairs and e-scooters.

This Plan was developed in response to the growing demand for safe and comfortable transportation options in Oak Harbor, with a focus on creating an inviting network for people of all ages and abilities to walk, bike, and roll throughout the city. The vision is centered on four main goals: mobility, health, safety, and equity.

The project assessed existing conditions in

Oak Harbor by documenting the ways in which the city already supports walking and biking and identifying opportunities for improvement.

The Plan's development process involved reviewing existing plans and policies related to active transportation to provide a consistent approach that builds on past efforts.

Extensive community engagement was a critical part of the planning process, including focus groups, a Steering Committee representing various organizations and agencies, an online survey and interactive web map, and a pop-up event. Gathering input from residents, City staff, and community leaders, allowed the project team to understand local perspectives, concerns, and priorities.

The project team also conducted three network analyses to evaluate the connectivity and comfort of Oak Harbor’s existing bike and pedestrian networks, including a sidewalk gap analysis, a pedestrian crossing stress analysis, and a bicycle level of traffic stress analysis.

These analyses informed network and project development, identifying locations where projects would be most impactful and helping to select appropriate facilities.

The existing conditions analysis, community engagement, and network analyses provided the foundation for three sets of network recommendations: the Proposed Sidewalks and Walkways, the Proposed Bike+ Network, and a set of seven Catalyst Projects. Together, these sets of recommendations will guide investments in active transportation infrastructure over the next decade.

In addition, the Plan identifies recommended policy changes and programs that would improve walking, biking, and rolling citywide.

These address issues such as bike parking, signal timing, and design standards, as well as programs to encourage more people to use active transportation for daily trips.

Finally, the Plan provides strategies for implementation, including cost estimates, a prioritized project list, and performance measures to track progress toward Plan goals.

The Plan provides a roadmap for creating a robust network of safe and accessible pedestrian and bicycle facilities. The Plan recommends specific projects and policies to achieve its goals and vision, aiming to make

Oak Harbor a more vibrant, healthy, and sustainable city.

Executive Summary

1 INTRODUCTION

Introduction

INTRODUCTION

What is Active Transportation?

Active transportation refers to any form of human-powered transportation, such as walking, biking, skateboarding, or using a mobility device. It also includes personal electric-powered devices such as power wheelchairs, e-bikes, and e-scooters.

Project Background and Motivation In 2022, the City of Oak Harbor began developing the Plan as an integral step toward enhancing quality of life, improving mobility and safety, reducing greenhouse gas emissions, and supporting local economies.

As Oak Harbor continues to grow, there is increasing demand for more comfortable and safe options to get around the city by walking, rolling, or bicycling. Opportunities for active transportation will continue to make the city an attractive place for new businesses and residents. In addition to local business and tourism, Oak Harbor serves as a regional hub for freight and the movement of goods. State Route 20 (SR 20) and other key arterials connect to major distribution centers and the Naval Air Station, which relies on efficient freight operations. As such, it is important that competing demands for the right-of-way in Oak Harbor are balanced so that multiple uses can function harmoniously.

Oak Harbor has already made progress on supporting active transportation through revised design standards, reduced speed limits, and comprehensive planning. This Plan builds on the City’s commitment by using new spatial data analysis tools such as Level of Traffic Stress Analysis and evaluating the needs and interests of the Oak Harbor community to inform an ambitious yet actionable plan. The Plan points to clear network, program, and policy strategies to create a supportive environment for walking, biking, and rolling in Oak Harbor.

Plan Vision The vision for the Plan, developed by City staff and community leaders, articulates the Plan’s desired outcome:

The Active Transportation Plan creates a network that invites people of all ages and abilities to walk, bike, and roll throughout Oak Harbor.

Level of Traffic Stress (LTS) When people walk or bike on roadways, they encounter varying degrees of stress from traffic. A quiet local street with a 25 mph speed limit is considered a very low-stress environment while a four lane highway with a 40 mph speed limit is considered higher stress. The LTS methodology assigns a numeric stress level based on attributes like traffic speed and volume, number of lanes, and ease of intersection crossings. Streets with a higher LTS discourage active transportation while streets with a lower LTS encourage it. See Appendix C for more information on LTS analysis.

Goals

GOALS

The Plan Vision is further broken down into four themes, which help connect the work of the Plan to larger societal goals:

Make walking, bicycling, and rolling a comfortable, accessible, and attractive transportation option for people of all ages and abilities. Shift motor vehicle trips to pedestrian, bike, and transit trips.

Eliminate fatalities and severe injuries for pedestrians and bicyclists by redesigning streets, educating road users, and implementing proven safety countermeasures.

Promote physical and mental health by creating infrastructure and development that supports increased physical activity and social interaction in daily routines.

Provide active transportation for all through equitable engagement, accessible design, and investments in pedestrian and bike facilities that serve those with the highest need.

Goals

EXISTING

CONDITIONS

Existing Conditions

EXISTING CONDITIONS

Geography & Street Network In many ways, Oak Harbor already supports active transportation. The City is medium-sized, and many popular destinations are within a ten-minute bike ride from nearly every other part of town. The street network is relatively well-connected, which enhances walkability and the accessibility of amenities by foot. Local streets also provide relatively low-stress routes for pedestrians and cyclists, enabling them to stay off roads with high traffic speeds and volumes.

However, some of the city’s high-traffic corridors (e.g., SR 20 and Swantown Ave) create barriers to walking, biking, and rolling between neighborhoods. Topography presents a challenge for some, but may become less of an issue with the growing adoption of electric mobility devices such as e-bikes.

Land Use Oak Harbor has a variety of residential neighborhoods with differing housing types ranging from single-family homes to apartment complexes. Ongoing growth has resulted in a mix of housing styles and sizes, catering to different budgets and preferences. Commercial areas are mainly located along SR 20, Midway Blvd, and SE Pioneer Way, with few businesses or services located in the northwest quadrant of the city. This decreases walkability for these neighborhoods since there are not as many destinations to walk to.

Oak Harbor has limited industrial areas, primarily located in the northern reaches of the city. Businesses involved in manufacturing, warehousing, and maritime activities are in these industrial zones.

1 Population estimates sourced from Washington State Office of Financial Management official population estimates, June 29, 2022, as referenced in the Oak Harbor Demographics Report (January 2023).

The city’s industrial areas around Ault Field, the northern unit of Naval Air Station Whidbey Island (NASWI), are both difficult to access by walking or biking due to uncomfortable conditions and a lack of facilities on Heller St, Oak Harbor Rd (north of Crosby Ave), and Goldie Rd / Charles Porter Ave.

Demographics Oak Harbor has a population of 24,760, constituting 28% of Whidbey Island’s overall population1. The median age in Oak Harbor is 31.1, significantly younger than that of Island County (43.8) and Washington State (37.8).

This is strongly influenced by NAS Whidbey, since 66.4% of the U.S. active-duty force is under 30. The City also has 3,356 veterans.

Oak Harbor’s mean per capita income is $30,377, 19% lower than the U.S. mean, while the median rent is $1,231, 32.5% higher than the U.S. average. This disparity between income and cost of living increases the strain that transportation puts on household budgets.

Active transportation could potentially be an affordable mobility option for many people in Oak Harbor.

Public Transportation Island Transit serves Oak Harbor and other parts of Island County, providing fare-free fixed route bus service, dial-a-ride, and paratransit service. Routes 2, 3, 9 and 10 provide service in and around Oak Harbor while Routes 1, 6, and 411 connect Oak Harbor to the Clinton Ferry, Coupeville, and March’s Point Park & Ride respectively. Most of these routes currently run once an hour or less, except for Route 10, which runs every half hour. Service https://www.oakharbor.gov/DocumentCenter/View/1568/Oak-Harbor-Demographics-Report-January-2023-PDF typically ends around 7:00 pm. Buses include racks that accommodate 2-3 bikes.

Pedestrian Facilities The Pedestrian Facilities Map (below) shows existing sidewalks, trails, and crossing enhancements in Oak Harbor. Much of the city has sidewalks, with the exception of residential neighborhoods in the southeast as well as some arterials and mobile home parks in the north. There are painted crosswalks at most major intersections, though some corridors have long gaps between crossings. Flashing beacons provide enhanced visibility at some key crossings, particularly those adjacent to schools.

Map 1: Existing pedestrian facilities in Oak Harbor and nearby areas of Island County

Bike Facilities The Bike Facilities Map (below) shows the city’s existing network of bike lanes and trails, which is mostly limited to the waterfront and some major roads (e.g., Whidbey Ave and Oak Harbor St). “Facilities" is a general term denoting provisions to accommodate or encourage walking or bicycling. Examples include bikeways, neighborhood greenways, and shared-use paths, in addition to parking and storage facilities. See Appendix D for more description of such facilities.

The city lacks formal bike facilities connecting to some key locations, including Ault Field and Joseph Whidbey State Park / West Beach.

Bicyclists in Oak Harbor reach many destinations using local streets to avoid major roads, but these lower-stress routes do not always have safe or convenient crossings at major roads and may still require riding on high-stress segments for short distances to access destinations. Furthermore, lower-stress routes can be difficult to navigate due to the city’s irregular street network.

Map 2: Existing Bike Facilities in Oak Harbor and nearby areas of Island County

Zoning The Zoning Map (below) shows largely residential zoning in Oak Harbor, with commercial and mixed used zoning limited to the Central Business District and along SR 20 and Midway Blvd. The lack of businesses, job opportunities, and services in the western half of the city makes it harder for residents in those neighborhoods to bike and walk for daily commuting and errands. Additionally, since the city’s industrial uses are concentrated in the northern end, employees who wish to walk or bike to those businesses must either use Oak Harbor Rd or Goldie Rd, both of which lack continuous facilities for walking or biking north of Crosby Ave / Easy St. The same applies for Ault Field, the city’s largest employment center, located north of Ault Field Rd on top of the map below.

Map 3: Zoning in Oak Harbor

Road Safety The Crash Density Map (below) shows a heat map of traffic collisions in Oak Harbor between 2018 and 2022. SR 20 accounts for a huge proportion of the city’s crashes. The real and perceived danger of SR 20 creates a barrier for people walking and biking in the city.

Increasing safety along SR 20 and other high crash locations will require collaboration with multiple agencies, including WSDOT and Island County.

Other locations with a concentration of crashes include:

• Ault Field Rd at Goldie Rd

• Crescent Harbor Rd at Regatta Dr

• Midway Blvd

• SE 8th Ave

• Whidbey Ave

Map 4: Crash density in Oak Harbor

3 PLAN

DEVELOPMENT

How We Got Here

HOW WE GOT HERE

The process of creating the Oak Harbor Active Transportation Plan (ATP) kicked off at the beginning of 2023. The project team reviewed existing plans and policies, collected and analyzed relevant data, interviewed local leaders, and solicited feedback from the community. The result of these efforts is summarized in subsequent sections.

The project team convened three Steering Committee meetings to review findings and guide the development of the ATP. In August, the team published a Draft ATP for review by the public and hosted a virtual Open House to solicit feedback. This feedback will inform the development of the Final ATP, which is slated for adoption by the City Council at the end of the year, as an element of Oak Harbor’s updated Comprehensive Plan. The City plans to implement the projects, policies, and programs proposed in the ATP over the next ten years. The project timeline below outlines the general timeline for the Plan’s development, adoption, and implementation.

Figure 1: Project timeline

Building Upon Existing Plans

BUILDING UPON EXISTING PLANS

This is Oak Harbor’s first ATP, but not the first plan to address Active Transportation in the city. To ensure that the ATP builds on existing work, the project team conducted a review of existing plans that provide guidance on walking, biking, and rolling in the city. The plans suggest key locations for transportation projects and accessibility improvements, emphasize human-scale design, and recommend connections between transportation and parks systems.

Oak Harbor 2036 Comprehensive Plan Year: 2016

Summary: Guides growth and development in Oak Harbor for the next 20 years and beyond

Relevant Goals and Takeaways:

• When selecting transportation projects, prioritize locations with a history of crashes

• Incorporate traffic calming and reduce lane widths as appropriate

• Coordinate improvements with emergency services

• Use the Safe Routes to School (SRTS) program as a model for identifying locations for active transportation facilities

• Provide active transportation facilities including for seniors, children, and people with disabilities

• Facilitate efficient connections by encouraging street system design in a rectangular grid pattern

• Maintain pedestrian-oriented atmosphere in the Old Town District

Design Regulations and Guidelines Year: 2019

Summary: Outlines requirements for site layout, architecture, and landscaping. Includes design requirements for special uses and areas, including for bike racks.

Relevant Goals and Takeaways:

• Orient buildings, entrances, windows, and activity to face the street to encourage a vibrant street life

• Provide a direct walking route to buildings from the sidewalk

Americans with Disabilities Act (ADA) Transition Plan Year: 2022

Summary: Identifies deficiencies in the City’s policies, procedures and physical assets and provides a framework to ensure accessibility.

Relevant Goals and Takeaways:

• Prioritize areas for ADA upgrades based on the pedestrian activity level and usage by people needing accommodations

• Alteration of existing streets must bring them to ADA compliance

• Adopt policy to upgrade pedestrian push buttons at signalized intersections to meet standards identified in PROWAG guidelines

Parks, Recreation, and Open Space (PROS) Plan Year: 2019

Summary: Outlines comprehensive planning goals for parks, recreation, and open space, including needs and recommendations for a six-year strategic and implementation plan.

Relevant Goals and Takeaways:

• Build more trails to connect parks, neighborhoods, and activity centers, increasing recreation and active transportation (see Map 5)

• Trails should be incorporated into the design of transportation projects

• Establish recommended standards for pedestrian and bicycle/multiuse trails

Island County Non-Motorized Trails Plan Year: 2018

Summary: A comprehensive framework for future investment in facilities that support all forms of human-powered recreation on both land and water. Identifies specific physical projects that can be advanced for funding and

Map 5: Trail Layout (Source: Oak Harbor 2019 PROS Plan) implementation, as well as County-wide projects that are programmatic in nature.

Relevant Goals and Takeaways:

• Develop an expanded, high-quality recreational trails system in Island County

• Projects around Oak Harbor include the Bos Lake Loop Trail, the Scenic Heights Road Advisory Shoulder, the Hoffman to City of Oak Harbor Connector, and the Navy Jet Trail

Oak Harbor Transportation Plan Year: 2016

Summary: Sets a framework for understanding, prioritizing, measuring, and creating a transportation network to help Oak Harbor achieve its vision of safe, efficient mobility, complimenting land use and county transportation.

Relevant Goals and Takeaways:

• Improve pedestrian and bicycle networks

• Support a regional trail system that connects Oak Harbor with Deception Pass, Joseph Whidbey State Park, and Dugualla State Park

• Increase traffic calming, reduce lane widths, and encourage a gridded street network

• Includes a bicycle and pedestrian priority network and a recommended project list

Oak Harbor Capital Improvements Plan 2023-2028

Year: 2022

Summary: Identifies capital projects proposed for the next six years and provides a link between projects and the annual budget.

Relevant Upcoming Projects:

• 7th Ave Wetlands Trail Feasibility Study

• Street Traffic Calming: City has allocated annual funding for traffic calming devices

• NE 7th Ave Reconstruction

• Hoffman to 16th Trail

• Midway Blvd Reconstruction

Other Plans Reviewed In addition to the plans discussed above, the project team reviewed the following documents, policies, and plans:

• Oak Harbor Waterfront Redevelopment, Branding, & Marketing Program (2005)

• Windjammer Park Integration Plan (2016)

• Oak Harbor Design Regulations and Guidelines (2019 Update)

Figure 2: A sample of local plans reviewed

Community Engagement

COMMUNITY ENGAGEMENT

How We Gathered Input This Plan was informed by an extensive public engagement process, including:

• 3 focus groups

• A Steering Committee including representatives from 14 local organizations and agencies

• An online survey that received 163 responses

• An interactive web map where people placed over 200 points to comment on local issues and destinations

• A booth at Holland Happening where the project team spoke with nearly 350 people

• A virtual open house with a diverse array of participants from the general public

Appendix B contains a detailed description of each element of community engagement. See appendix for more specific information about survey and web map results, and focus group discussion.

Figure 3: Focus group discussion

What We Heard The overarching sentiment heard from the public was that community members want:

• Dedicated space for walking and biking

• Separation from motor vehicles

With few exceptions, most of the comments received were about how people do not feel safe walking or biking in Oak Harbor.

Community members emphasized how trails or bike lanes that are fully separated from vehicle travel lanes would encourage more walking and biking. Mixing cars with pedestrian and bicycle activity is less desirable than creating dedicated paths for people to walk and bike on.

Separated paths would allow community members to avoid big roads and feel safer when walking or biking.

Others who participated in community engagement noted that safe crossings are needed for people to get across busy roads.

Several people mentioned how a big road is a barrier to walking and biking. Safe crossings are particularly needed at Island Transit bus stops.

The topic of safety for children arose in many instances. Most people agree that the risk of getting hit by a car feels too high for parents to allow their kids to walk or bike around Oak Harbor by themselves.

Most people who participated in engagement for this plan want a connected network of dedicated facilities that is separated from cars in order to walk and bike more.

Community Engagement

Crossing Issues Uncomfortable and difficult crossings were a common theme from Web Map respondents.

Locations identified through the Web Map are summarized on the map below. As the City develops bicycle and pedestrian projects citywide, these locations will receive special consideration for crossing improvements such as crosswalks, median refuge islands, signal changes, and/or flashing beacon.

Map 6: Crossing issues identified through Interactive Web Map

Network Analysis

NETWORK ANALYSIS

As part of this Plan, three analyses were performed to evaluate the connectivity and comfort of Oak Harbor’s existing bike and pedestrian networks:

• Sidewalk Gap Analysis. Used the City’s data on existing sidewalks to visually identify key gaps in the network.

• Pedestrian Crossing Stress Analysis.

Evaluated the Level of Traffic Stress for people crossing the street, based on traffic volumes, the number of lanes crossed, posted speed limits, and the presence of crossing islands and traffic control devices, such as stop signs, traffic signals, or flashing beacons.

• Bicycle Level of Traffic Stress Analysis.

Evaluated the Level of Traffic Stress for Oak Harbor’s street network, based on factors such as speed, traffic volumes, and the presence of existing bike facilities.

Generally, streets with speeds above 25 miles per hour and with traffic volumes above 1,500 to 3,000 vehicles per day were considered “high-stress” if they do not have some form of a dedicated bikeway.

These analyses were used to inform network and project development for the active transportation plan. They helped determine where crossing improvements are most needed, what types of bicycle facilities are appropriate for different corridors, and where new sidewalks or walkways were most needed to create a connected network. See Appendix C for more information on the technical approach and assumptions for these analyses.

Sidewalk Coverage Oak Harbor has an extensive but incomplete network of existing sidewalks. While many areas have sidewalks on both sides of the street, there are a number of exceptions. The southeast corner of the city, south of Whidbey Ave and east of SR 20, and several of the City’s mobile home parks on the north end, some of which include private streets, are two swaths of the network that lack adequate sidewalk connectivity.

There are also several major arterials with substantial missing segments of sidewalk, including Crosby Ave, Goldie St, and Regatta Dr (see Sidewalk Coverage Analysis map on the following page).

Level of Crossing Stress One of the primary factors influencing the safety and comfort of people walking is the level of stress they experience when crossing paths with motor vehicle traffic (see the Level of Crossing Stress Analysis map on page 22).

High Stress Crossings are concentrated along the following corridors:

• Crescent Harbor Rd

• Crosby Rd

• Goldie St

• Heller St

• Midway Blvd

• Oak Harbor St

• SE Pioneer Way

• NE Regatta Dr

• Scenic Heights St

• State Route 20

• SW Swantown Ave

Map 7: Sidewalk Coverage Analysis

Map 8: Level of Crossing Stress Analysis

Potential Bicycle Users The stress that individuals feel when bicycling is inherently subjective. Some people are more comfortable riding with more and/or faster-moving motor vehicle traffic and with less separation. Error! Reference source not found. below illustrates a typical range of cyclists, ranging from least to most comfortable sharing the road with motor vehicles.2 Not included in the figure below is the 37% of the population that is either unwilling or unable to ride a bicycle.

It is important to understand which type of cyclist is most likely or most desired to use any given facility, as this will affect the design and degree of separation from vehicle traffic necessary. All Ages and Abilities bikeway facilities are designed for all bicyclists, even the Interested but Concerned, to travel safely and comfortably.

Figure 4: Typical range of cyclists

Source: Toole Design visualization of Jennifer Dill and Nathan McNeil’s “Four Types of Cyclists”

2 Based on findings from Jennifer Dill and Nathan McNeil, “Four Types of Cyclists? Examination of Typology for Better Understanding of Bicycling Behavior and Potential,” Transportation Research Record: Journal of the Transportation Research Board, 2387: 129-138, 2013.

Bicycle Level of Traffic Stress (BLTS) While a small portion of Oak Harbor’s population is comfortable bicycling in heavy, fast-moving traffic, members of the Interested but Concerned group make up the vast majority of those who can or want to bicycle.

This group requires separated facilities, low traffic speeds and volumes, or a combination of both in order to consider bicycling. Therefore, measuring the Bicycle Level of Traffic Stress (BLTS) of the existing transportation network can help determine the quality of the bike network from the perspective of most residents. The BLTS analyzes the speed and volume of the roadway as well as the existing bicycle facilities. An example of a lower stress bikeway would be a buffered bike lane on a street with a 25 MPH speed limit and a low volume of motor vehicle traffic.

Map 9 on the next page, shows the BLTS across Oak Harbor’s street network. The majority of Oak Harbor’s neighborhood streets provide low-stress connections due to relatively low vehicle speeds and volumes.

However, these streets can be indirect and some include steep grades that present challenges for casual cyclists or families, i.e.

those who comprise the Interested but Concerned demographic. Other low-stress routes include the City’s trails, like the side path along Oak Harbor St. The City’s existing bike lanes generally do not offer a low-stress riding experience because they do not provide sufficient separation from motor vehicle traffic on streets with higher speeds and volumes.

Corridors with a high BLTS include:

• Ault Field Rd

• Bayshore Dr

• Crescent Harbor Road

• Crosby Rd

• Goldie St

• Heller St

• Midway Blvd

• Oak Harbor Rd

• SE Pioneer Way

• NE Regatta Dr

• Scenic Heights St

• State Route 20

• Swantown Ave

Figure 5: Bicycle Level of Traffic Stress (BLTS) (Source: WSDOT Active Transportation Plan)

Map 9: Bicycle Level of Traffic Stress Analysis

PROJECTS

NETWORK RECOMMENDATIONS

This Plan provides both short-term and long-term recommendations for the development of active transportation facilities in Oak Harbor.

These recommendations were developed through a collaborative planning process involving extensive public engagement and technical analysis. Appendix D contains more description of the facility types recommended in this Plan.

As part of the long-term strategy, this Plan identifies street segments where new sidewalks should be prioritized. It also identifies a proposed bike facility network that will provide safe and comfortable bicycle routes throughout the city.

Proposed Pedestrian Projects The Proposed Sidewalks and Walkways map

(p. 28) identifies locations where the City will prioritize the installation of new pedestrian facilities. These recommendations do not include building sidewalks on all streets that currently do not have one, rather they focus on closing gaps in the existing sidewalk network and providing connectivity to key destinations, where they can provide the most benefit and return on investment.

The projects identified may include both traditional sidewalk with curb and gutter as well as cost-effective alternatives, which may include at-grade asphalt walkways or dedicated pedestrian space, created by reallocating existing street width and providing separation between motor vehicles and people walking. In general, the City aims to provide a safe place to walk on at least one side of all major streets.

Figure 6: Sidepath on Oak Harbor St

Figure 7: Dedicated pedestrian space in Seattle, WA

Figure 8: At-grade asphalt walkway in Kirkland, WA

Network Recommendations

Map 10: Proposed Sidewalks & Walkways

Network Recommendations

Bike+ Network The Bike+ Network (p. 30) lays out a long-term vision for bicycle routes throughout Oak Harbor and the Urban Growth Area (UGA).

These routes are called the “Bike+” network because they are intended for use not only by bicyclists but also by people using e-bikes, adaptive bikes, scooters, skateboards, and cargo bikes. In some cases, people with disabilities who use wheelchairs, electric mobility scooters, or other mobility devices may prefer using bicycling infrastructure instead of pedestrian infrastructure where the bicycling infrastructure is smoother, freer of barriers, and more continuous. Acknowledging the diversity of bikeway users, it is important to ensure that facilities are designed with sufficient width and smooth transitions.

The goal of this network is to provide a safe and connected system of bikeways throughout the City. Bikeways include bike lanes, separated bike lanes, neighborhood greenways, and shared use paths. For additional examples and information about bikeways, see Appendix D.

The proposed facility types in the Bike+ Network are based on roadway characteristics, bicycle level of traffic stress, engineering judgement, and community feedback, particularly from the Interactive Web Map. For most streets, they rely on existing roadway width, enabling cost effective implementation using quick-build materials. However, some projects, such as the proposed side paths, would require a larger investment and possible right of way acquisition. Recommendations are based on preliminary analysis and are subject to change.

Figure 9: Neighborhood Greenway in Bellingham, WA

Figure 10: Separated bike lane in Seattle, WA

Figure 11: Buffered bike lane on Oak Harbor St

Map 11: Proposed bike-plus network

Catalyst Projects

CATALYST PROJECTS

Using feedback from the interactive web map and focus groups, and comments received on the administrative draft, the project team identified nine potential Catalyst Projects in Oak Harbor (see map on p. 32), which were refined through discussions with City staff and the Steering Committee.

These projects are high priorities for early action and funding opportunities because of their potential to significantly improve active transportation and multi-modal connectivity in Oak Harbor. The recommendations included were developed through preliminary discussions and analysis and are subject to change. Each of the Catalyst Projects would also require substantial community engagement and analysis to successfully design and implement:

1. SR 20, SW Eagle Vista Ave to W Ault Field Rd: Separated bike lanes, sidewalks, roundabouts, and median refuge islands

2. Midway Blvd, Pioneer Way to W Ault Field Rd: Road diet, separated bike lanes, new crossings

3. Barrington Dr, Ireland St, & Jerome St, Heller St to E Whidbey Ave: Neighborhood greenway, bike lanes, pedestrian walkways

4. O’leary St and Pasek St, Pioneer Way to SR 20: Neighborhood Greenway, walkways, crossing improvements, traffic calming

5. Bayshore Dr and Pioneer Way, SR 20 to Regatta Dr: Road diet on SE Pioneer Way, two-way separated bike lane along the waterfront, crossing improvements

6. Heller St and Swanton Ave, Oak Harbor St to Ft Nugent Ave: Separated bike lanes, road diet

7. Crosby Ave, Heller Rd to Oak Harbor Rd: Sidepath

8. SW 3rd/SE 4th Aves, Jib St, & 2nd Ave, Heller St to Regatta Dr: Neighborhood Greenway, bike lane

9. Fort Nugent Rd, Swantown Ave to Boon Rd: Bike lanes

Figure 12: Midway Blvd at SE 8th Ave (a crossing that presents safety issues for pedestrians)

Map 12: Proposed Catalyst Projects

1. State Route 20 SW 24th Ave to W Ault Field Rd

SR 20 bisects Oak Harbor and is characterized by high speeds and long distances between crossings (e.g., 2,400 ft between Whidbey Ave and NE 7th Ave). The City would like to see the highway designed to be pedestrian and bike friendly, reducing the level of traffic stress from LTS 4 to LTS 1 or LTS 2.

The range of treatments to consider for achieving this include separated bike lanes, median refuge islands, and roundabouts, filling in sidewalk gaps, and adding 3-5 new pedestrian crossings. The design may consider mid-block crossings on long stretches where the distance between existing crossings is more than a ten-minute walk for pedestrians.

WSDOT has programmed $30 million for improvements to SR 20 within the City of Oak Harbor tentatively scheduled for year 2028. The adoption of this plan establishes the City’s desires for changes that WSDOT should consider in their improvement project. Figures 13 and 14 provide a range of possible design concepts (4-lane and 3-lane respectively) to reduce speeds on SR 20 and achieve a lower level of traffic stress for bicyclists and pedestrians. Additional discussion and design concept approach is included in a letter and proposal from WSDOT in Appendix E (p. 85).

Figure 13: State Route 20 Proposed Cross Section with two travel lanes (Made with Streetmix)

Figure 14: State Route 20 Proposed Cross Section with one travel lane, and center left-turn lane (Made with Streetmix)

2. Midway Blvd Pioneer Way to SR 20

Midway Blvd is a minor arterial street that lacks safe facilities for biking. It also has several stretches without adequate crossing opportunities. This Plan recommends a road diet, changing the cross section from four to three lanes and creating space for separated bike lanes and pedestrian refuge islands. New crossings with rapid flashing beacons are also recommended at SE 6th Ave and 7th Ave.

Figure 15: Midway Blvd Proposed Cross Section (Made with Streetmix)

3. Barrington Dr, Ireland St, and Jerome St Heller St to Whidbey Ave

The sections of Barrington Dr approaching SR 20 on either side include overly wide lanes, which encourage speeding. This Plan proposes reallocating space to create bike lanes on both sides of SR 20, creating safe crossings at bus stops, and creating a neighborhood greenway along Ireland St and Jerome St that extends north to E Whidbey Ave. It could also include walkways to fill in sidewalk gaps.

Figure 16: Barrington Dr Proposed Cross Section (Made with Streetmix)

Figure 17: Ireland St and Jerome St Proposed Cross Section (Made with Streetmix)

4. O’leary St and Pasek St Pioneer Way to SR 20

This residential corridor is the proposed location for Oak Harbor’s first Neighborhood Greenway. This proposal would use traffic calming, signage, and pavement markings to further reinforce this corridor as a low-volume, low-speed route for biking and walking. It would also include new crosswalks, painted curb extensions, and sidewalks or walkways to fill gaps in the existing network.

Pasek Street would look very much like the cross section of Ireland St and Jerome St presented in Figure 17 above

Figure 18: O'Leary St Proposed Cross Section (Made with Streetmix)

5. Bayshore Dr and Pioneer Way SR 20 to Regatta Dr

This section of Pioneer Way and Bayshore Dr runs through the heart of the City, connecting shopping and Windjammer Park trails on the west to the Skagit Valley College, Navy base, library, and marina on the east. This Plan proposes a road diet with bike lanes from SR 20 to City Beach St and a two-way separated bike lane along the waterfront.

Figure 19: Bayshore Dr Proposed Cross Section (Made with Streetmix)

6. Heller St and Swantown Ave Crosby Ave to Fort Nugent Rd

Heller Ave provides a local north-south connection between Oak Harbor’s western neighborhoods.

This Plan proposes a Neighborhood Greenway that uses traffic calming and crossing improvements to further solidify the corridor as a low-stress connection for people biking and walking.

There are a few segments of Heller St that would require deviating from the proposed cross section due to steep slopes and constrained ROW. Conceptual designs of the potential treatments to Heller Street that may be necessary, near Crosby Ave and Swantown Ave, are provided in Appendix F (p.

95).

Figure 20: Heller St Proposed Cross Section (Made with Streetmix)

7. Crosby Ave Heller Rd to Oak Harbor Rd

Crosby Ave is a key east-west corridor connecting northern neighborhoods to the neighborhood greenway on Heller Rd. Island Transit Route 10 provides transit service along this corridor. This Plan proposes a sidepath on the south side for use by cyclists and pedestrians, along with crossing improvements, to make access to transit safer and more comfortable.

Figure 21: Crosby Ave Proposed Cross Section (Made with Streetmix)

8. SW 3rd/SE 4th Aves, Jib St, and NW 2nd Ave Heller Rd to Regatta Dr

The east-west corridor along 3rd and 4th Ave connects to many of the city’s schools and neighborhoods. This Plan proposes a neighborhood greenway that would make this a more safe and comfortable connection with traffic calming, bike lanes, and crossing improvements.

Figure 22: SW 3rd Ave Proposed Cross Section (Made with Streetmix)

9. Fort Nugent Rd Swantown Rd to Boon Rd

Fort Nugent Rd is a rural collector and minor arterial that provides access to western neighborhoods of Oak Harbor. Island Transit Route 6 runs along Fort Nugent Rd. This Plan proposes a two-way cycle-track on the north side to reduce the number of conflict points with turning vehicles.

Figure 23: Ft Nugent Rd Proposed Cross Section (Made with Streetmix)

Proposed Bike Projects

PROPOSED BIKE PROJECTS

5 POLICIES &

PROGRAMS

Policy Recommendations

POLICY RECOMMENDATIONS

These policies are proposed to increase walking, biking, and rolling citywide. They include updates to regulations and strategies to address bike parking, signal timing, street design standards, and other active transportation issues. Some policies are ready for immediate implementation while others require additional consideration.

Roundabouts and Bike Detection at Signals Replace traffic signals with roundabouts where feasible to create safe accommodations for people walking and biking (e.g., bike ramps and splitter islands for two-phase crossings).

Establish standards for bike detection at signalized intersections (based on current state and federal guidance), exploring newer technologies such as video detection. Include pavement markings that indicate where bicyclists should position themselves for detection to activate signals.

Provide buttons that are accessible to bicyclists and individuals with disabilities (ADA) from the street at push-button actuated signals along Neighborhood Greenways.

Pedestrian Signal Timing Reduce or rebalance signal cycle lengths for vehicles to incorporate a pedestrian walk phase into each cycle and minimize pedestrian delay. Prioritize locations with a high volume of pedestrians crossing and/or a history of pedestrian crashes involving turning vehicles.

3 A leading pedestrian interval (LPI) gives pedestrians the opportunity to enter the crosswalk at an intersection up to 10 seconds before vehicles are given a green indication. Pedestrians can better establish their presence in the crosswalk before vehicles have priority to turn right or left.

Install Leading Pedestrian Intervals (LPIs)3 to reduce conflicts between pedestrians and turning vehicles.

Bike Parking Update local requirements for bike racks as part of multi-family and commercial projects based on the Association of Pedestrian and Biking Professionals’ (APBP) Essentials of Bike Parking guidelines. Reference APBP as the standard for secure and adaptable bike parking in the Bicycle Parking Code. Include parking that works for cargo bikes and adaptive bikes.

Figure 24: Bike corral

Provide bicycle parking at key locations (e.g., dense commercial areas, transit hubs, and social service locations) in the public right of way. Use underutilized street parking to install bike corrals, when possible. Use existing sidewalk space (outside of the pedestrian clear https://www.apbp.org/Publications https://www.apbp.org/Publications zone), when underutilized parking is not available. Include options for secure bike parking indoors, or within enclosures, for areas with multifamily housing or office complexes and employment centers.

Crosswalks at Bus Stops Coordinate with Island Transit to relocate bus stops to locations with an existing crosswalk, where feasible. Evaluate the feasibility of installing new crosswalks and appropriate enhancements where bus stops need to be in locations without existing crosswalks. Aim to provide a safe crossing at every bus stop.

Zoning for Walkability Consider reducing or eliminating commercial parking requirements. Consider updating zoning along certain sections of Swantown Ave, Heller St, NW Crosby Ave, SW Fort Nugent Ave, and/or W Whidbey Ave to allow for commercial and mixed-use development and improve walkability on the west side of Oak Harbor.

Subdivision and Street Requirements Require pathways to increase connectivity for pedestrians and bicyclists at dead-ends or cul-de-sacs.

Update street requirements (Tables 11.17-2 and 21.50-1) to require:

• A minimum of 5 ft for all bike lanes (6 ft preferred)

• Buffered or separated bike lanes on all arterials and collector streets

• Sidewalks on all street types

Sidewalk and Curb Ramp Construction Establish a policy around where to prioritize new, City-funded sidewalks and curb ramp upgrades to prioritize limited resources based on factors such as ADA accessibility, schools, and transit access. Policy may include consideration about where to prioritize sidewalks on one or both sides of the street.

Policy may also consider adding curb extensions as part of maintenance or sidewalk upgrades to lower the curb radius. A small curb radius helps cut down on crossing time for pedestrians and discourages motorists from rolling through stops.

Additional consideration may be given to eliminating rolled curbs, and replacing them with curb-and-gutter style curbs to be ADA compliant and to delineate driveways more clearly.

Alternative Walkways Figure 25: Alternative walkway, Tukwila, WA

Create design standards for ADA-complaint alternative walkways for existing local streets where right-of-way and other constraints make conventional sidewalk construction cost prohibitive. They may include at-grade asphalt walkways or the delineation of pedestrian space within the existing roadway width using vertical elements like wheel stops and flexible posts. Include signage and design features to prevent drivers from parking on at-grade sidewalks.

Vehicle Speed Limits Reduce speed limits in the Speed Limit Ordinances based on a Safe Systems approach, applying guidance from WSDOT’s Injury Minimization and Speed Management Policy and NACTO’s City Limits. Lower the default speed limit to 20 mph for local streets and 25 mph for major streets within the city, with the exception of certain sections of SR 20 where a slightly higher limit may be appropriate.

Figure 26: Mini-roundabout installed as a traffic calming measure, Kirkland, WA

4 For more information, see FHWA Traffic Calming ePrimer and ITE traffic calming fact sheets.

Implement traffic calming measures (see Figure 26 as an example) to promote safe driving speeds on local streets where speeding is an issue.4 Consider removing yellow center lines on streets intended only for local neighborhood circulation.

Municipal Codes Revise Municipal Codes to:

• Allow safe and prudent use of sidewalks by bicyclists.

• Add floating parking lanes to the Parking and Traffic Control regulations.

• Increase widths for bike lanes and sidewalks in the Street Design Standards.

• Make separated bike lanes the standard treatment for arterials to provision for a maximum block length as part of the Street Design Standards.

• Consider establishing a minimum pedestrian and bicycle level of stress in the Transportation Concurrency.

• Limit or prohibit use of rolled curb in the General Design Standards.

• Adopt Complete Streets Ordinance

Bike Lane Sweeping Prioritize street sweeping on roadways with bike lanes or shoulders used regularly by bicyclists. Consider purchasing downsized https://wsdot.wa.gov/sites/default/files/2021-10/InjuryMinimization-SpeedManagement-PolicyElements-Recommendations.pdf https://wsdot.wa.gov/sites/default/files/2021-10/InjuryMinimization-SpeedManagement-PolicyElements-Recommendations.pdf https://nacto.org/publication/city-limits/ https://highways.dot.gov/safety/speed-management/traffic-calming-eprimer https://www.ite.org/technical-resources/traffic-calming/traffic-calming-measures/ street maintenance vehicles for trails and separated bike lanes.5

5 See NACTO case studies on Downsized Street Maintenance Vehicles.

https://nacto.org/Downsized-Street-Maintenance-Vehicles/

Program Recommendations

PROGRAM RECOMMENDATIONS

These programs are suggestions for the City and other partner organizations to increase awareness around walking, biking, and rolling in Oak Harbor. They are designed to engage with community members and make it easier for them to walk, bike, and roll in Oak Harbor.

Safe Routes to School Support and expand existing programs to encourage walking and biking in Oak Harbor schools, such as bike trains, walking school buses, and special events/challenges.6

Bicycle Education Incorporate bicycle education into the curriculum for all Oak Harbor students.

Provide bicycle education for adults through a partnership with the Whidbey Island Bicycle Club and/or the Oak Harbor Fire Department.

Youth Bike Club Create a program in Oak Harbor schools around mountain biking and/or road riding, taking advantage of the nearby trails such as the Kettles and Moyers Loop.

6 Refer to the National Center for Safe Routes to School, the WSDOT’s Safe Routes to School Program, or the U.S. Department of Transportation’s Safe Routes to School Program for further resources on programing and funding

Figure 27: Flyer for a Safe Route to School event in Sonoma County (Credit: Sonoma County Safe Routes to School) https://www.saferoutesinfo.org/ https://wsdot.wa.gov/business-wsdot/support-local-programs/funding-programs/safe-routes-school-program…